DISASTER MANAGEMENT IN INDIA

Ministry of Home Affairs Government of India c Disaster Management in India e

ACKNOWLEDGEMENT

The perception about disaster and its management has undergone a change following the enactment of the Disaster Management Act, 2005. The definition of disaster is now all encompassing, which includes not only the events emanating from natural and man-made causes, but even those events which are caused by accident or negligence. There was a long felt need to capture information about all such events occurring across the sectors and efforts made to mitigate them in the country and to collate them at one place in a global perspective. This book has been an effort towards realising this thought. This book in the present format is the outcome of the in-house compilation and analysis of information relating to disasters and their management gathered from different sources (domestic as well as the UN and other such agencies). All the three Directors in the Disaster Management Division, namely Shri J.P. Misra, Shri Dev Kumar and Shri Sanjay Agarwal have contributed inputs to this Book relating to their sectors. Support extended by Prof. Santosh Kumar, Shri R.K. Mall, former faculty and Shri Arun Sahdeo from NIDM have been very valuable in preparing an overview of the book. This book would have been impossible without the active support, suggestions and inputs of Dr. J. Radhakrishnan, Assistant Country Director (DM Unit), UNDP, New Delhi and the members of the UNDP Disaster Management Team including Shri Arvind Sinha, Consultant, UNDP. Support was extended by all the concerned ministries who provided the data that has been used in compiling this book. We sincerely acknowledge the organisations and the individuals whose photographs, figures and tables have been used in the presentation of this book for highlighting the issues concerned. While compiling disaster issues across the sectors, for the first time, with substantial information pertaining to other nodal ministries dealing with the subject, the chances of errors creeping in, is not ruled out. There would always be scope of improvement in the accuracy of material and analysis of facts. It is, however, expected that in the days to come, on the base prepared, this will be further improved upon, following the suggestions received from the end users. In producing this document, the cooperation extended by colleagues from different ministries/ departments and Government agencies is acknowledged. Without the consistent guidance and support extended by Shri G.K. Pillai, Union Home Secretary and Shri A.E. Ahmad, Secretary (Border Management) it would not have been possible to prepare this document.

R. K. Srivastava Joint Secretary Ministry of Home Affairs Government of India

Contents

Chapter 1: Disasters in India - An Overview 1.1 Introduction 1 1.2 Etymology 1 1.3 Definition 1 1.4 Disasters not new to Mankind 1 1.5 Database 2 1.6 Disasters – Global Scenario 4 1.7 Vulnerability Profile of India 11 1.8 Climate Profile 14 1.9 Cause and Effect of Disasters 16 1.10 Droughts 17 1.11 Floods 18 1.12 Tropical Cyclones 21 1.13 Heat Wave 23 1.14 Cold Wave and Fog 25 1.15 Thunderstorm, Hailstorm and Dust Storm 26 1.16 Earthquakes 26 1.17 Landslides 29 1.18 Industrial and Chemical Disasters 30 1.19 Tsunami 32 1.20 Stampede 39 1.21 Nuclear Emergencies 40 1.22 Road Accidents 41 1.23 Rail Accidents 44 1.24 Air Accidents 45 1.25 Mine Disasters 46 1.26 Epidemics in India 49 1.27 Deaths due to Unnatural Cause 50 1.28 Conclusion 53

i Disaster Management in India

Chapter 2: Institutional Framework 2.1 Evolution of Disaster Management in India 55 2.2 Disaster Management during British Administration and Post Independence 55 2.3 Emergence of Institutional Arrangement in India 55 2.4 Organisation and Structure of Disaster Management 55 2.5 Disaster Management Framework 55 2.6 Present Structure for Disaster Management in India 56 2.7 Disaster Management Act, 2005 57 2.8 National Disaster Management Authority (NDMA) 57 2.9 National Executive Committee (NEC) 59 2.10 State Disaster Management Authority (SDMA) 59 2.11 State Executive Committee (SEC) 59 2.12 District Disaster Management Authority (DDMA) 59 2.13 Institutional Framework for Metropolitan Cities 60 2.14 Hierarchical Structure of Authority and Committee 60 2.15 National Institute of Disaster Management (NIDM) 60 2.16. National Disaster Response Force (NDRF) 63 2.17 State Disaster Response Force (SDRF) 64 2.18 Civil Defence 64 2.19 Fire Services 66 2.20 National Civil Defence College (NCDC), Nagpur 67 2.21 National Fire Service College (NFSC), Nagpur 67 2.22 Home Guard 68 2.23 Interface between the Ministries for Disaster Management 68 Chapter 3: Policy and Guidelines 3.1 Introduction 71 3.2 National Policy on Disaster Management (NPDM) 71 3.3 National Plan on Disaster Management 71 3.4 Focus and Objectives of Guidelines 73 3.5 Management of Droughts 76 3.6 National Action Plan on Climate Change 77 3.7 Rules notified under the Disaster Management Act, 2005 77 3.8 Conclusion 79

ii Chapter 4: Prevention and Mitigation 4.1 Introduction 81 4.2 Mainstreaming of Disaster Risk Reduction in Developmental Strategy 81 4.3 National Disaster Mitigation Fund 83 4.5 Earthquakes 83 4.6 Cyclones 87 4.7 Floods 88 4.8 Study of Land Contour by Geological Survey of India (GSI) 90 4.9 Landslides 91 4.10 Tsunami 92 4.11 Droughts 92 4.12 Fire 93 4.13 Forest Fire Management 96 4.14 Oil Industry 96 4.15 Chemical Disasters 96 4.16 Prevention of Disasters in Mines 96 4.17 Epidemics 97 4.18 Measures taken for Rail Safety 98 4.19 Road 100 4.20 Civil Aviation 101 4.21 Conclusion 101 Chapter 5: Preparedness and Response 5.1 Introduction 103 5.2 Institutional Arrangements 103 5.3 India Meteorological Department (IMD) 104 5.4 Forecast of Rainfall 104 5.5 Forecasting System - Background 105 5.6 Forecasting and Warning of Cyclones 106 5.7 Flood Forecasting – Central Water Commission 107 5.8 Tsunami warning – Indian National Centre for Oceanic Information System (INCOIS) 108 5.9 Warning about Landslide hazard – Geological Survey of India (GSI) 108 5.10 Avalanche warning – Defence Research & Development Organization (DRDO) 109 5.11 Disaster Management Support (DMS) – Indian Space Research Organization (ISRO) 109

iii Disaster Management in India

5.12 Radiological and Nuclear Emergencies 110 5.13 Installation of Radiological Detection Equipment 111 5.14 Director General of Mines Safety 111 5.15 Epidemic 112 5.16 Preparedness 112 5.17 Trigger Mechanism 113 5.18 Crisis Management Plan (CMP) and Standard Operating Procedures (SOPs) 113 5.19 Role and responsibility of Central and State Governments 113 5.20 Inter Agency Co-ordination Mechanism 114 5.21. Cabinet Committee on Management of Natural Calamities 114 5.22 National Crisis Management Committee (NCMC) 114 5.23 Crisis Management Group (CMG)/National Executive Committee 114 5.24 Role of the State Government 116 5.25 State Crisis Management Group (SCMG) 116 5.26 Role of District Administration 116 5.27 Role of Sub-district Administration 117 5.28 National Emergency Operation Centre (NEOC) 117 5.29 State Control Room 118 5.30 District Control Room 118 5.31 National Disaster Response Force (NDRF) 118 5.32 State Disaster Response Force (SDRF) 120 5.33 Policy for acceptance of External Assistance 120 5.34 Drought Relief Measures 121 5.35 Conclusion 123 Chapter 6: Recovery, Reconstruction and Rehabilitation 6.1 Background 125 6.2 Nature of Recovery 125 6.3 Guiding Principles for Post- Recovery 125 6.4 Assessment 126 6.5 Co-ordination 126 6.6 Shelter 126 6.7 Sustainability in Recovery Process 126 6.8 Accountability 127 6.9 Evaluation 127

iv 6.10 Guidance notes on Recovery 127 6.11 Some Indian experiences in Recovery in the last two decades 127 6.12 Bhopal Gas Tragedy (1984) 127 6.13 Kutch Earthquake (2001) 129 6.14 Tsunami (2004) 131 6.15 Kosi Calamity (2008) 135 6.16 Leh Cloudburst (2010) 137 6.17 Mayapuri Radiation Exposure Delhi-2010 140 6.18 Conclusion 141 Chapter 7: Capacity Development 7.1 An Overview 143 7.2 Definition 143 7.3 Approach 144 7.4 National Institute of Disaster Management (NIDM) 145 7.5 National Disaster Management Authority 146 7.6 Disaster Management Centres in the States 149 7.7 Training of the National Disaster Response Force (NDRF) 151 7.8 Incident Response System (IRS) 154 7.9 National Civil Defence College (NCDC), Nagpur 155 7.10 National Fire Service College (NFSC), Nagpur 158 7.11 Ministry of Human Resource Development: 159 7.12 Ministry of Panchayati Raj & Rural Development 160 7.13 Conclusions 161 Chapter 8: Financial Arrangements 8.1 Financing the Relief Expenditure 163 8.2 Recommendation of 13th Finance Commission 163 8.3 National Disaster Response Fund (NDRF) 164 8.4 Monitoring of Expenditure from Relief Funds 165 8.5 Disaster Response Reserve 165 8.6 Capacity Building Grant 165 8.7 Revamping of Fire Services 166 8.8 Environmental Relief Fund 167 8.9 Plan Schemes 169 8.10 Non-Plan Schemes 171

v Disaster Management in India

8.11 Externally Aided Schemes 171 8.12 Items and Norms of Assistance for Relief from NDRF and SDRF 173 8.13 Conclusion 173 Chapter 9: International Cooperation 9.1 Overview 175 9.2 Hyogo Framework of Action 175 9.3 Agencies of United Nations involved in Disaster Management 176 9.4 United Nations International Strategy for Disaster Reduction (UNISDR) 177 9.5 United Nation Disaster Management Team (UNDMT) 178 9.6 United Nations Disaster Assessment and Coordination (UNDAC) 178 9.7 United Nations Office for the Coordination of Humanitarian Affairs (UNOCHA) 179 9.8 International Search and Rescue Advisory Group (INSARAG) 180 9.9 Global Facility for Disaster Risk Reduction (GFDRR) 181 9.10 ASEAN Region Forum (ARF) 181 9.11 Asian Disaster Reduction Centre (ADRC) 182 9.12 Asian Disaster Preparedness Center (ADPC) 184 9.13 SAARC Disaster Management Centre (SDMC) 184 9.14 India’s engagement with external agencies on Disaster Risk Reduction (DRR): 187 9.15 United Nation’s Development Programme (UNDP) 187 9.16 Program for Enhancement of Emergency Response (PEER) 189 9.17 United States Agency for International Development (USAID) – Assisted Disaster Management (DMS) Support Project 190 9.18 INDO-SWISS Agreement 191 9.19 Indo-Russian Agreement in the field of Emergency Management 191 9.20 Third Trilateral meeting of experts of India- Russia and China 192 9.21 Asian Minister Conference on Disaster Risk Reduction (AMCDRR) 192 9.22 Conclusion 193 Chapter 10: The Way Forward 10.1 Background 195 10.2 Recent Initiatives 195 10.3 List of Suggested Sectors 195 10.4 Developing a Centralised Database 196 10.5 Early warning systems and communication and connectivity upto the last mile 196 10.6 Emergency Operations Centers (EOCs) 196

vi 10.7 Mitigation Plans and Mainstreaming Disaster Management into the Development Planning Process 196 10.8 Strengthening the Preparedness Phase 197 10.9 Capacity Building Plan 200 10.10 National, State and District level Response Plan 200 10.11 Corporate Social Responsibility 200 10.12 Integrating Climate Change and Disaster Risk Reduction 201 10.13 Conclusion 201 Glossary 202 Footnotes 208 References 209 Abbreviations and Acronyms 210 Tables, Boxes and Figures 220 Important Telephone Numbers Disaster Management Division, MHA 224 National Disaster Management Authority (NDMA) 224 Members/Alternate Members of the National Crisis Management Committee (NCMC) 225 National Disaster Response Force (NDRF) 226 NDRF Battalions 226 National Institute of Disaster Management (NIDM) 227 Nodal/Alternate officers of Central nodal Ministries/Departments 227 Forecasting agencies 229 Chief Secretaries (CS) and Relief Commissioners (RC) of States/UTs as on 09/05/11 230

vii Disasters in India - An Overview 1.1 Introduction 1.1.1 India’s geo-climatic conditions as well as its high degree of socio-economic vulnerability, makes it one of the most disaster prone country in the world. A disaster is an extreme disruption of the functioning of a society that causes widespread human, material, or environmental losses that exceed the ability of the affected society to cope with its own resources. Disasters are sometimes classified according to whether they are “natural” disasters, or “human-made” disasters. For example, disasters caused by floods, droughts, tidal waves and earth tremors are generally considered “natural disasters.” Disasters caused by chemical or industrial accidents, environmental pollution, transport accidents and political unrest are classified as “human-made” or “human- induced” disasters since they are the direct result of human action. 1.1.2 A more modern and social understanding of disasters, however, views this distinction as artificial since most disasters result from the action or inaction of people and their social and economic structures. This happens by people living in ways that degrade their environment, developing and over populating urban centres, or creating and perpetuating social and economic systems. Communities and population settled in areas susceptible to the impact of a raging river or the violent tremors of the earth are placed in situations of high vulnerability because of their socio-economic conditions. This is compounded by every aspect of nature being subject to seasonal, annual and sudden fluctuations and also due to the unpredictability of the timing, frequency and magnitude of occurrence of the disasters. 1.2 Etymology The word ‘Disaster’ derives from Middle French désastre1 and that from Old Italian disastro, which in turn comes from the Greek pejorative prefixδυσ- , (dus-) “bad”+ Dστήρ (aster), “star”. The root of the word disaster2 (“bad star” in Greek and Latin) comes from an astrological theme in which the ancients used to refer to the destruction or deconstruction of a star as a disaster. 1.3 Definition 1.3.1 Disaster is an event or series of events, which gives rise to casualties and damage or loss of properties, infrastructures, environment, essential services or means of livelihood on such a scale which is beyond the normal capacity of the affected community to cope with. Disaster is also sometimes described as a “catastrophic situation in which the normal pattern of life or eco-system has been disrupted and extra-ordinary emergency interventions are required to save and preserve lives and or the environment”. 1.3.2 The Disaster Management Act, 2005 defines disaster as“a catastrophe, mishap, calamity or grave occurrence in any area, arising from natural or man made causes, or by accident or negligence which results in substantial loss of life or human suffering or damage to, and destruction of, property, or damage to, or degradation of, environment, and is of such a nature or magnitude as to be beyond the coping capacity of the community of the affected area”. 1.3.3 The United Nations defines disaster as “the occurrence of sudden or major misfortune which disrupts the basic fabric and normal functioning of the society or community”. 1.4 Disasters not new to Mankind 1.4.1 Disasters are not new to mankind. They have been the constant, though inconvenient, companions of the human beings since time immemorial. Disasters can be natural or human- made. Earthquake, cyclone, hailstorm, cloud-burst, landslide, soil erosion, snow avalanche,

1 Disaster Management in India flood etc. are the examples of natural disasters while fire, epidemics, road, air, rail accidents and leakages of chemicals/ nuclear installations etc. fall under the category of human-made disasters. The High Power Committee on Disaster Management, constituted in 1999, has identified 31 various disasters categorized into five major sub-groups which are given in Box 1.1.

Box 1.1: List of various Disasters i. Water and climate related a) Floods and drainage management disasters b) Cyclones c) Tornadoes and hurricanes d) Hailstorm e) Cloud burst f) Heat wave and cold wave g) Snow avalanches h) Droughts i) Sea erosion j) Thunder and lightening k) Tsunami ii. Geological related disasters a) Landslides and mudflows b) Earthquakes c) Dam failures/ Dam bursts d) Minor fires iii. Chemical, industrial and nuclear a) Chemical and industrial disasters related disasters b) Nuclear disasters iv. Accident related disasters a) Forest fires b) Urban fires c) Mine flooding d) Oil spills e) Major building collapse f) Serial bomb blasts g) Festival related disasters h) Electrical disasters and fires i) Air, road and rail accidents j) Boat capsizing k) Village fire v. Biological related disasters a) Biological disasters and epidemics b) Pest attacks c) Cattle epidemics d) Food poisoning

Source: High Powered Committee Report-1999 Note: After 2004, Tsunami has also been included in the list of disasters.

1.5 Database The mechanism for preparing a database for different kinds of disasters happening across the country is yet to be developed. National Institute for Disaster Management (NIDM), under the Disaster Management Act, 2005 has been tasked with research work and it is expected that it would develop a mechanism to capture such data on the disasters including its impact on socio- economic life of the nation and GDP growth. At the global level, the three main sources which have been collecting the data are EM-DAT, Natcat and Sigma. EM-DAT is the acronym for data that the Centre for Research on the Epidemiology on Disasters (CRED) has been collecting from the

2 An Overview countries since 1987 (going back to 1900). Munich Reinsurance Company maintains Natcat and Swiss Reinsurance Company maintains Sigma. The authenticity of the data collected by these agencies varies and the figures given by them do not necessarily attest to any comprehensive data and may be exaggerated sometimes which was realized in the case of the report given in respect of 1999 landslides in Venezuela3. 1.5.1 Lack of Central Statistical database as a record of past disasters is a major constraint for risk assessment and compilation of disaster history in the country. Different sources of data have different figures of casualties and impacts, thereby hindering an objective assessment. Scientific data on major hazards are available but information on vulnerabilities are scattered in multiple places and often such data are not available uniformly for the entire country. 1.5.2 Disaster information available from different sources are yet to be regularly assessed by common public as well as other stakeholders. Lack of awareness about available resources is a reason for lack of last mile reach of the available information. 1.5.3 In India, Ministry of Statistics and Programme Implementation have taken initiatives for collection of data in respect of different disasters. A Technical Committee was constituted by the Central Statistics Office with a view to prepare a framework for disaster statistics for developing a database on disaster and related aspects. Five formats have been developed for capturing the information about (i) Statistics on disaster at district level, (ii) Statistics on relief, rehabilitation and reconstruction at district level, (iii) District wise compilation of statistics on disaster, (iv) District- wise compilation of statistics on relief, rehabilitation and reconstruction and (v) Aggregation of damage and relief data at state level. The state Government and District level institutions would be required to furnish this information for preparing the data base at centralized level.

Figure 1.1: Regional Distributions of Disasters by Type

Regional distribution of disasters by type 1991 - 2005

World distribution of disasters by type 6% 3% 6% 14% 1991 - 2005 20% Europe Volcano E arthquake & Tsunami 2% 8% 8% E pidemic 3% 40% 13% Asia 1% 10% 4% 3% Insect Infestation 13% 1% Americas 34% Wind Storm 3% 6% 5% 4% 6% 25% Drought Africa 6% 1% 14% 30% 38% 26% 2% 7% E xtreme temperature 33% 4% 34% 7% 5% 3% 9% 1% 1% 5% 5% 1% 6% 2% Oceania 6% 20% WildFire 4%

Slide Flood 4% 32% 5% 5% Drought Epidemic Extreme temperature 46% Flood Slide Earthquake & tsunami Wind storm Volcano Insect infestation Wild fire

1532 Regional distribution of natural disasters by origin 1991 - 2005 581

World distribution of disasters by origin 1991 - 2005 1072 44 42

Geological 10% Europe 607

393 298 199

Biological 14% 114 31 76 Asia Africa 184 Americas 24 13

Hydrometeorological Oceania 76% Hydrometeorological Geological Biological

Source: Centre for Research on Epidemiology of Disaster

3 Disaster Management in India

1.6. Disasters – Global Scenario4 1.6.1 Disasters - natural or human-made are common throughout the world. Disasters continue to occur without warning and are perceived to be on an increase in their magnitude, complexity, frequency and economic impact. Hazards pose threats to people and assume serious proportions in the under developed countries with dense population. During the second half of the 20th century, more than 200 worst natural disasters occurred in the different parts of the world and claimed lives of around 1.4 million people. Losses due to natural disasters are 20 times greater (as % of GDP) in the developing countries than in industrialized one. Asia tops the list of casualties due to natural disasters. Figure 1.1 shows the Regional distribution of disasters by type, as prepared by Centre for Research on Epidemiology of Disaster. 1.6.2 There have been several natural, as well as, man-made disasters. Records of natural disasters can be traced way back to 430 B.C. when the Typhus epidemic was reported in Athens. Ten deadliest natural disasters recorded in the world are dated back to 1556 when an earthquake in Shaanxi province of China occurred on 23rd January, 1556 and 8,30,000 casualties were recorded. List of ten deadliest disasters which have occurred across the world and in India in the known history and in the last century may be seen from the Table 1.1 and Table 1.2 respectively. Table 1.1: World’s Deadliest Disasters Sl. Name of Event Year Country and Region Fatalities No. In the Known History 1. Earthquake 1556 China, ShaanxiŽ 830000 2. Earthquake 1731 ChinaŽ 100,000 3. Cyclone 1737 India, CalcuttaŽ 300000 4. Yellow River flood 1887 ChinaŽ 900,000–2,000,000 5. Messina Earthquake 1908 Italy€ 123000 6. Earthquake 1920 China, GansuŽ 235000 7. Great Kanto 1923 Japan€ 142,000 Earthquake 8. Great Chinese Famine 1958-1961 China€ 15,000,000–43,000,000 9. Bhola Cyclone 1970 West Bengal, India & 500,000 East Pakistan (now Bangladesh)€ 10. Tangshan Earthquake 1976 China€ 242,419 In the Last Century 1. China Floods, 1931 China€ 1,000,000–2,500,000 2. Floods 1954 China€ 40,000 3. Cyclone 1970 Bangladesh, Chittagong, 300,000 Khulna€

4. Bangladesh Cyclone, 1991 Bangladesh€ 139,000

5. Earthquake 1999 Turkey€ 17,000

6. Tsunami 2004 Indonesia, Sri Lanka, 230,210 India, Malaysia, Somalia, Bangladesh, ThailandŽ

4 An Overview

Sl. Name of Event Year Country and Region Fatalities No. 7. Hurricane Katrina 2005 United States of AmericaŽ 1,836 8. Sichuan Earthquake 2008 ChinaŽ 87476 deaths including missing 9. Cyclone Nargis 2008 MyanmarŽ More than 138,000 deaths 10. Haiti Earthquake 2010 HaitiŽ 316,000

ŽTopics 2000, Natural Catastrophes-the current position, Special Millennium Issue, Munich Re Group, 1999 € Centre for Research on Epidemiology of Disasters (CRED) EM-DAT, Belgium

Table: 1.2: India’s Deadliest Disasters Sl. Name of Event Year State & Area Fatalities No. In the Known History 1. Earthquake 1618 Mumbai, 2,000 deaths Maharashtra€ 2. Bengal Earthquake 1737 Bengal€ 300, 000 deaths 3. Cyclone 1864 Kolkata, West 60,000 deaths Bengal€ 4. The Great Famine 1876- Southern India€ 58.5 million people affected 1878 5.5 million deaths due to starvation 5. Cyclone 1882 Bombay, 100,000 deaths Maharashtra€ 6. The Indian famine 1896- Whole India€ 1.25 million to 10 million deaths 1897 7 Earthquake 1934 Bihar€ 6,000 deaths 8 Bhola Cyclone 1970 West Bengal€ 500,000 deaths (including Hindu Kush Himalayas and surrounding areas) 9 Drought 1972 Large part of the 200 million people affected country€ 10 Drought 1987 Haryana€ 300 million people affected In the Last Century 1 Earthquake 1905 Kangra, Himachal 20,000 deaths Pradesh€ 2 Cyclone 1977 Andhra Pradesh€ 10,000 deaths hundreds of thousands homeless 40,000 cattle deaths. Destroyed 40% of India’s food grains. 3 Latur Earthquake 1993 Latur, Marthawada, 7,928 people died and another 30,000 region of the were injured. Maharashtra€ 4 Orissa Super Cyclone 1999 Orissa€ 10,000 deaths 5 Gujarat Earthquake 2001 Bhuj, Bachau, Anjar, 25,000 deaths Ahmedabad, and 6.3 million people affected Surat in Gujarat State€

5 Disaster Management in India

Sl. Name of Event Year State & Area Fatalities No. 6 Tsunami 2004 coastline of Tamil 10,749 deaths Nadu, Kerala, 5,640 persons missing Andhra Pradesh and 2.79 million people affected Pondicherry, as well 11,827 hectares of crops damaged as the Andaman and 300,000 fisher folk lost their Nicobar Islands of livelihoods India€ 7 Maharashtra floods July 2005 Maharashtra StateŽ 1094 deaths 167 Injured 54 Missing 8 Kashmir Earthquake 2005 Kashmir State€ 86000 deaths (includes Kashmir & surrounding Himalayan region) 9 Kosi Floods 2008 North BiharŽ 527 Deaths 19323 Livestock perished 222754 Houses damaged 3329423 persons affected 10 Cyclone Nisha 2008 Tamil Nadu€ 204 deaths $800 million worth damages ŽTopics 2000, Natural Catastrophes-the current position, Special Millennium Issue, Munich Re Group, 1999 € Centre for Research on Epidemiology of Disasters (CRED) EM-DAT, Belgium Figure 1.2 and 1.3 shows the vulnerability scenario across the globe in terms of events and India has faced more than 260 events of disasters and over 3.5 million people affected from 1975 - 2001. It further analyses that the vulnerability of people and severity of disasters.

Figure 1.2: Global Disaster Scenario: Distribution of Natural Disasters

6 An Overview

Figure 1.3: Distribution of People Affected

1.6.3 Disaster events which have occurred between 1900-2009 may be further categorized based on hydro meteorological, geological and biological reasons. This may be seen in Table 1.3.

Table 1.3: Events of Disasters globally between 1900 - 2009

Disaster Types Decades 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 Total -09 -19 -29 -39 -49 -59 -69 -79 -89 -99 -09 Hydro meteorological 28 72 56 72 120 232 463 776 1498 2034 3529 8880 78.4% Geological 40 28 33 37 52 60 88 124 232 325 354 1373 12.1% Biological 5 7 10 3 4 2 37 64 170 361 612 1275 11.3% Total 73 107 99 112 176 294 388 964 1900 2720 4495 11328

Source: Centre for Research on Epidemiology of Disasters (CRED)

1.6.4 The Disaster Events: From Figure 1.4 it may be noticed that the disasters are on increase. The number of disasters events which was 73 in 1900-09 have increased 4494 during 2000-2009. The rise are between the decade of 1900-99 over the period of 2000-09 has been more than 67%.

7 Disaster Management in India

Figure 1.4: Event of Disasters globally in between 1900 - 2009

4000 Hydro meteorological 3500 Geological Biological 3000

2500

2000

1500

1000

500

0 1900-09 1910-19 1920-29 1930-39 1940-49 1950-59 1960-69 1970-79 1980-89 1990-99 2000-09 Source: Centre for Research on Epidemiology of Disasters (CRED)

Figure 1.5 shows that 78.4% of the disaster events are accounted during this period for hydro meteorological events. Figure 1.5 and 1.6 shows that incidents of Hydro meteorological is on increase and life lost is also maximum in the hydro meteorological events.

Figure 1.5: Disaster Events (1900-2009) Figure 1.6: Disaster Deaths (1900 - 2009)

149,736 11.3% (10.99%) 12.1% 559,481 653,128 78.4% (41.06%) (47.94%)

Hydro-Met Geological Biological

Source: Centre for Research on Epidemiology of Disasters (CRED)

1.6.5 Indian Scenario: India due to its geo-climatic and socio-economic condition is prone to various disasters. During the last thirty years time span the country has been hit by 431 major disasters resulting into enormous loss to life and property. According to the Prevention Web statistics, 143039 people were killed and about 150 crore were affected by various disasters in the country during these three decades. The disasters caused huge loss to property and other infrastructures costing more than US $ 4800 crore. The most severe disasters in the country and their impact in term of people affected, lives lost and economic damage is given in the Table 1.4.

8 An Overview

Table 1.4: People affected, lives lost and economic damage due to Disasters in India between 1980 to 2010 Year Type of Disasters People affected Life lost Economic damage (USD x 1,000) 1980 Flood 30,000,023 1982 Drought 100,000,000 Flood 33,500,000 1984 Epidemic 3290 1987 Drought 300,000,000 1988 Epidemic 3000 1990 Storm 2,200,000 1993 Flood 128,000,000 7,000,000 Earthquake* 9,748 1994 Flood 2001 1995 Flood 32,704,000 1996 Storm 1,500,300 1998 Storm 2871 Extreme Temp. 2541 Flood 1811 1999 Storm 9,843 2,500,000 2000 Drought 50,000,000 2001 Earthquake* 20,005 2,623,000 2002 Drought 300,000,000 Flood 42,000,000 2004 Flood 33,000,000 2,500,000 Earthquake* 16,389 2005 Flood 3,330,000 Flood 2,300,000 2006 Flood 3,390,000 2009 Flood 2,150,000

Source: “EM-DAT: The OFDA/CRED International Disaster Database * (includes Tsunami) 1.6.6 In India, the cyclone which occurred on 25th November, 1839 had a death toll of three lakh people. The Bhuj earthquake of 2001 in Gujarat and the Super Cyclone of Orissa on 29th October, 1999 are still fresh in the memory of most Indians. The most recent natural disaster of a cloud burst resulting in flash floods and mudflow in Leh and surrounding areas in the early hours of 6th August, 2010, caused severe damage in terms of human lives as well as property. There was a reported death toll of 196 persons, 65 missing persons, 3,661 damaged houses and 27,350 hectares of affected crop area. 1.6.7 Floods, earthquakes, cyclones, hailstorms, etc. are the most frequently occurring disasters in India. Table 1.5 gives an account of the loss due to above disasters during decade of 2001- 2010.

9 Disaster Management in India

Table 1.5: Year-wise damage caused due to floods, cyclonic storms, landslides etc. during last ten years in India

Year Live Lost Cattle Lost Houses damaged Cropped areas affected (in human (in No.) (in No.) (in No.) Lakh hectares) 2001-02 834 21,269 3,46,878 18.72 2002-03 898 3,729 4,62,700 21.00 2003-04 1,992 25,393 6,82,209 31.98 2004-05 1,995 12,389 16,03,300 32.53 2005-06 2,698 1,10,997 21,20,012 35.52 2006-07 2,402 4,55,619 19,34,680 70.87 2007-08 3,764 1,19,218 35,27,041 85.13 2008-09 3,405 53,833 16,46,905 35.56 2009-10 1,677 1,28,452 13,59,726 47.13 2010-11 2,310 48,778 13,38,619 46.25 Source: Ministry of Home Affairs (MHA) 1.6.8 The hazard vulnerability of the country as shown in Figure 1.7 finds a face when we look at the major disasters of the country from 1980-2010. During this period of 30 years the country has been hit by approximately 25 major disasters apart from the heat wave, cold wave and heavy winds affecting some areas of the country.

Figure 1.7: Major Disasters in India from 1980-2010

Source: NIDM

10 An Overview

1.7. Vulnerability Profile of India 1.7.1 India has been vulnerable, in varying degrees, to a large number of natural, as well as, human-made disasters on account of its unique geo-climatic and socio-economic conditions. It is highly vulnerable to floods, droughts, cyclones, earthquakes, landslides, avalanches and forest fires. Out of 35 states and union territories in the country, 27 of them are disaster prone. Almost 58.6 per cent of the landmass is prone to earthquakes of moderate to very high intensity; over 40 million hectares (12 per cent of land) are prone to floods and river erosion; of the 7,516 km long coastline, close to 5,700 km is prone to cyclones and tsunamis; 68 per cent of the cultivable area is vulnerable to drought and hilly areas are at risk from landslides and avalanches. A multi-hazard map of India may be seen in Figure 1.8. Hazard Profile of India (a) India is one of the ten worst disaster prone countries of the world. The country is prone to disasters due to number of factors; both natural and human induced, including adverse geo climatic conditions, topographic features, environmental degradation, population growth, urbanisation, industrialization, non scientific development practices etc. The factors either in original or by accelerating the intensity and frequency of disasters are responsible for heavy toll of human lives and disrupting the life supporting system in the country. The basic reason for the high vulnerability of the country to natural disasters is its unique geographical and geological situations. As far as the vulnerability to disaster is concerned, the five distinctive regions of the country i.e. Himalayan region, the alluvial plains, the hilly part of the peninsula, and the coastal zone have their own specific problems. While on one hand the Himalayan region is prone to disasters like earthquakes and landslides, the plain is affected by floods almost every year. The desert part of the country is affected by droughts and famine while the coastal zone susceptible to cyclones and storms. (b) The natural geological setting of the country is the primary basic reason for its increased vulnerability. The geo-tectonic features of the Himalayan region and adjacent alluvial plains make the region susceptible to earthquakes, landslides, water erosion etc. Though peninsular India is considered to be the most stable portions, but occasional earthquakes in the region shows that geo- tectonic movements are still going on within its depth. (c) The tectonic features, characteristics of the Hiamalya are prevalent in the alluvial plains of Indus, Ganga and Brahmputra too, as the rocks lying below the alluvial pains are just extension of the Himalayan ranges only. Thus this region is also quite prone to seismic activities. As a result of various major river systems flowing from Himalaya and huge quantity of sediment brought by them, the area is also suffering from river channel siltation, resulting into frequent floods, especially in the plains of Uttar Pardesh and Bihar. (d) The western part of the country, including Rajasthan, Gujarat and some parts of Maharashtra are hit very frequently by drought situation. If Monsoon worsens the situation spreads in other parts of the country too. The disturbance in the pressure conditions over oceans, results into cyclones in coastal regions. The geo tectonic movements going on in the ocean floor make the coastal region prone to tsunami disaster too. (e) The extreme weather conditions, huge quantity of ice and snow stored in the glaciers etc. are other natural factors which make the country prone to various forms of disasters. (f) Along with the natural factors discussed in the preceding text, various human induced activities like increasing demographic pressure, deteriorating environmental conditions,

11 Disaster Management in India

Figure 1.8 : Multi Hazard Map of India

Source: DM unit, UNDP, India

12 An Overview

deforestation, unscientific development, faulty agricultural practices and grazing, unplanned urbanisation, construction of large dams on river channels etc. are also responsible for accelerated impact and increase in frequency of disasters in the country.

Figure 1.9: INDIA - Losses due to Disasters

90 80 86 Economic loss - 2% 70 of the GDP rore c 60 (Source :World Bank) 50 54 thousand 40 in

30 36

Losses 20 50 % 139 % 10 0 91 - 95 96 - 00 '01 - 05

Period Source: NDMA

Losses due to disasters have been shown in Figure 1.9. It shows that economic loss is accounted for 2% of the GDP due to disasters as per the study of the World Bank.

1.7.2 Vulnerability to disasters or emergencies of Chemical, Biological Radiological and Nuclear (CBRN) origin has increased on account of socio-economic development. Heightened vulnerabilities to disaster risks can be related to expanding population, urbanization and industrialization, development within high-risk zones, environmental degradation and climate change.

During the last two decades of the 19th century (1982-2001), natural disasters in India had claimed a total death toll of around 1, 07,813 people (on an average more than 5,390 death toll every year). As mentioned above, India with its extended coast line is exposed to five to six tropical cyclones on an average, both from the Arabian Sea and Bay of Bengal annually.

1.7.3 Climate Change: This is Figure 1.10: IPCC estimates of climate change evident from the increase in the global average air and ocean temperatures, precipitation and extreme rainfall, widespread melting of snow and ice, storms/ storm surges/coastal flooding and rising global mean sea level, as recorded in the fourth Assessment Report of Intergovernmental Panel on Climate Change (IPCC) Figure 1.10. Climate change is expected to increase the Source: IPCC

13 Disaster Management in India frequency and intensity of current extreme weather events and give rise to new vulnerabilities with differential spatial and socio-economic impacts on communities. The unprecedented increase is expected to have severe impacts on the hydrological cycle, water resource, droughts, flood, drinking water, forest and ecosystems, sea level/coastal area losses of coastal wetlands and mangroves, food security, health and other related areas. The impact would be particularly disastrous for developing countries, including India and further degrade the resilience of poor, vulnerable communities, which make up between one quarter and one half of the population of the most Indian cities.

1.7.4 Reason for concern: There is clear evidence that the observed change in surface temperature, rainfall, evaporation and extreme events and climate change is a significant environmental challenge. The main impact of global climate change will be felt due to changes in climate variability and weather extremes. Observations during the last decade and projections indicate that extreme events i.e. heat waves, cold waves, more floods, more droughts, more intense cyclones and flash floods will increase. Extreme rainfall has substantially increased over large areas, particularly over the west coast and west central India. There is thus an urgent need for a paradigm shift in disaster management, especially under changing climate.

1.7.5 Poverty and disaster vulnerability: Poverty and risk to disasters are inextricably linked and mutually reinforcing. The poor section of the society is worst affected in case of disaster. The situation further aggravates due to the compulsion of the poor to exploit environmental resources for their survival, increasing the risk and exposure of the society to disasters, in particular those triggered by flood, drought and landslides. Poverty also compels the poor to migrate and live at physically more vulnerable locations, often on unsafe land and in unsafe shelters. These inhabitations of the poor at such locations are either due to the fact that there is no other land available at reasonable cost or it is close to the employment opportunities. The inhabitations of the poor people on marginal land are prone to all types of disasters. The type of construction of these houses further deteriorates the condition. These dwellings made up of low cost material without giving much consideration to technical aspect are easy targets of various hazards.

1.8. Climate Profile5 1.8.1 India is home to an extraordinary variety of climatic regions, ranging from tropical in the south to temperate and alpine in the Himalayan north. The nation’s climate is strongly influenced by the Himalayas and the Thar deserts. For the purpose of identification of drought prone areas by Central Water Commission (CWC) the criteria adopted was that “drought is a situation occurring in an area when the annual rainfall is less than 75 percent of normal in 20 percent of the years examined. Any block or equivalent unit where 30 percent or more of the cultivated area is irrigated is considered to have reached a stage, which enables it to sustain a reasonable protection against drought”. A study rainfall data from 1875 to 1998 indicated the percentage area of the country affected by moderate and severe drought. It may be noted that during the complete 124 year period there were three occasions i.e. 1877, 1899 and 1918 when percentage of the country affected by drought was more than 60 percent).

1.8.2 In the span of 124 years, the probability of occurrence of drought was found maximum in Rajasthan (25 %), Saurastra & Kutch (23%), followed by Jammu & Kashmir (21%) and Gujarat (21%) region. The drought of 1987 in various parts of the country was of “unprecedented intensity” resulting in serious crop damages and an alarming scarcity of drinking water.

14 An Overview

1.8.3 Rainfall in India: The country is influenced by two seasons of rains, accompanied by seasonal reversal of winds from January to July. Consequent to the intense heat of the summer months, the northern Indian landmass becomes hot and draws moist winds over the oceans causing a reversal of the winds over the region called the summer or the south-west (SW) monsoon. This is most important feature controlling the Indian climate because about 75 percent of the annual rainfall is received during a short span of four months ie June to September. There is a large variation in the amounts of rainfall received at different locations. The average annual rainfall is less than 13 cm over the western Rajasthan, while Mausiram in the Meghalaya has as much as 1141 cm. During the period from 1871 to 2009, there were 27 major drought years in India. One of the major reasons for these droughts has been a strong link with the El Nino-Southern Oscillation (ENSO) patterns and its linkages with Indian food grain production. 1.8.4 South West Monsoon: The rainfall over India has large spatial as well as temporal variability. A homogeneous data series has been constructed for the period 1901-2003. Mean monthly rainfall during July (286.5 mm) is the highest and contributes about 24.2 percent of the annual rainfall (1182.8 mm). The mean rainfall during August is slightly lower and contributes 21.2 percent of the annual rainfall. June and September rainfalls are almost similar and contribute 13.8 percent and 14.2 percent of the annual rainfall, respectively. The mean south-west monsoon (June, July, August and September) rainfall (877.2 mm) contributes 74.2 percent of the annual rainfall (1182.8 mm). 1.8.5 The onset of the SW monsoon normally starts over the Kerala coast, the southern tip of the country by 1st June, advances along the Konkan coast in early June and covers the whole country by middle of July. Onset occurs about a week earlier over islands in the Bay of Bengal. The monsoon is influenced by global and local phenomenon like EI Nino, northern hemisphere temperature, sea surface temperatures, snow cover etc. The monsoon rainfall oscillates between active spells associated with widespread rains over most parts of the country. Heavy rainfall in the mountainous catchment under ‘break’ conditions result in flooding of the plains. 1.8.6 Cyclonic systems of low pressure called ‘monsoon depressions’ are formed in the Bay of Bengal during this season. These systems generally form in the northern part of the Bay with average frequency of about two to three per month and move in a northward or north- westward direction, bringing well distributed rainfall over the central and northern parts of the country. The SW monsoon generally starts withdrawing from Rajasthan by 1st September and from north-western part of India by 15th September. It withdraws from almost all parts of the country by 15th October. It is replaced by a northerly continental airflow called North-East Monsoon. The retreating monsoon winds cause occasional showers along the east coast of Tamil Nadu. 1.8.7 North East Monsoon: Post- monsoon or Northeast monsoon or Retreating SW Monsoon Season (October, November and December): North- East monsoon or post monsoon season is a transition season associated with the establishment of the north-easterly wind regime over the Indian sub continent. Meteorological subdivisions of coastal Andhra Pradesh, Tamil Nadu, Kerala and South Interior Karnataka receive good amounts of rainfall accounting for about 35 percent of their annual total rainfall in these months. Many parts of this region are affected due to the storms forming in the Bay of Bengal. Large scale losses to life and property occur due to heavy rainfall, strong winds and storm surges in the coastal region.

15 Disaster Management in India

1.9 Cause and Effect of Disasters6 1.9.1 India is vulnerable to extreme weather events (Box 1.2). Over the decade of the 1990s, both the number and severity of such events have increased. Weather events can be classified as extreme on the basis of various factors such as the impact, the socio-economic losses, environmental degradation and long term damages etc. 1.9.2 With more than 70 percent of India’s population relying on agriculture directly or indirectly, the impact of extreme weather on human life and other living beings. is critical. In the state of Orissa, 49 years have experienced floods, 30 have had droughts, and 11 faced cyclones. These analyses have yielded a 30-year cyclicity of the Indian monsoons. Droughts were more common in the 1960s. Of the 14 major drought years in the 85-year record, eight occurred in the first 30 year period (1891-1920) whereas there was only one in the second 30 year period (1921- 1950). In the 25-year period from 1951 –1981, five major drought years were recorded. In 1972 and 1979 deficient rainfall (about 25% below normal) was recorded in one half to two thirds of India’s plains. In 1994, monsoon rainfall was deficient (between 20% and 43%) in 10 of the 31 meteorological subdivisions of India. 1.9.3 According to the World Meteorological Organization (WMO), data of major natural disasters/ extremes that occurred around the world during the period 1963-2002, indicates that floods and droughts cause the maximum damage as shown in Table 1.6.

Table 1.6: Worldwide view of damage caused by Natural disasters

Type of natural disaster around the world Damage caused by natural calamities (%) Floods 32 Tropical Cyclones 30 Droughts 22 Earthquakes 10 Other disasters 6

Source: World Meteorological Organisation 1.9.4 Floods and droughts occurring in India are closely associated with the nature and extent of the summer monsoon. The inter-annual fluctuations in the summer monsoon rainfall over India are sufficiently large to cause devastating floods or serious droughts. Floods and droughts affect vast areas of the country, transcending state boundaries. One-sixth area of the country is drought-prone. Out of 40 million hectares of the flood prone area in the country, on an average, floods affect an area of around 7.5 million hectares per year.

Box 1.2: Examples of extreme weather events Primary Climatic Events x Cold wave, fog, snow storms and avalanches x Hailstorm, thunderstorm and dust storms x Extreme temperature x Tropical cyclone and tidal wave x Floods, heavy rain x Droughts (hydrological, meteorological and agricultural etc.)

16 An Overview

Secondary Events ( May be climate-driven) x Incidence of epidemics or diseases x Urban and rural water shortage x Crop plantation failure or harvest failure x Malnutrition or under nutrition and hunger x Landslides, saline water intrusion and mudflows Source: NIDM

1.10 Droughts7 The primary cause of any drought is deficiency of rainfall and in particular, the timing, distribution and intensity of this deficiency in relation to existing reserves. A prolonged period of relatively dry weather leading to drought is a widely recognized climate anomaly. Drought can be devastating as water supplies dry up, crops fail to grow, animals die, and malnutrition and ill health become widespread The environmental effects of drought, including stalinization of soil and groundwater decline, increased pollution of freshwater ecosystems and regional extinction of animal species. The details of the drought years may be seen from the Table 1.7. Table 1.7: Drought years with percentage area of the country affected by drought S. No. Year Moderate drought (%) Severe drought (%) Total (%) 1 1877 30.6 28.9 59.5 2 1891 22.4 0.3 22.7 3 1899 44.1 24.3 68.4 4 1901 19.3 10.7 30.0 5 1904 17.5 16.9 34.4 6 1905 25.2 12.0 37.2 7 1907 27.9 1.2 29.1 8 1911 13.0 15.4 28.4 9 1913 24.5 0.0 24.5 10 1915 18.8 3.4 22.2 11 1918 44.3 25.7 70.0 12 1920 35.7 2.3 38.0 13 1925 21.1 0.0 21.1 14 1939 17.8 10.7 28.5 15 1941 35.5 0.0 35.5 16 1951 35.1 0.0 35.1 17 1965 38.3 0.0 38.3 18 1966 35.4 0.0 35.4 19 1968 21.9 0.0 21.9 20 1972 36.6 3.8 40.4 21 1974 27.1 6.9 34.0 22 1979 33.0 1.8 34.8 23 1982 29.1 0.0 29.1 24 1985 25.6 16.7 42.3 25 1987 29.8 17.9 47.7 26 2002 19.0 10.0 29.0 27 2009 32.5 13.5 46.0 Source: IMD

17 Disaster Management in India

Source: NDMA

In India around 68 percent of the country is prone to drought in varying degrees. Of the entire area 35 percent receives rain falls between 750 mm and 1125 mm which is considers drought prone while 33 percent which receives rainfalls between less than 750 mm is considered to be chronically drought prone. 1.11. Floods8 1.11.1 Flood destructions have always brought miseries to numerous people, especially in rural areas. Flood results in the outbreak of serious epidemics, specially malaria and cholera. Simultaneously, scarcity of water also arises. It has a drastic effect on agricultural produce. Sometimes, water remains standing over large areas for long span of time hampering the Rabi crops. The flood hazard map of India may be seen in the Figure 1.11. 1.11.2 India is one of the most flood prone countries in the world. The principal reasons for flood lie in the very nature of natural ecological systems in this country, namely, the monsoon, the highly silted river systems and the steep and highly erodible mountains, particularly those of the Himalayan ranges. The average rainfall in India is 1150 mm with significant variation across the country. The annual rainfall along the western coast and Western Ghats, Khasi hills and over most of the Brahmaputra valley amounts to more than 2500 mm. Most of the floods occur during the monsoon period and are usually associated with tropical storms or depressions, active monsoon conditions and break monsoon situations. 1.11.3 Twenty-three of the 35 states and union territories in the country are subject to floods and 40 million hectares of land, roughly one-eighth of the country’s geographical area, is prone to floods. The National Flood Control Program was launched in the country in 1954. Since then sizeable progress has been made in the flood protection measures. By 1976, nearly one third of the flood prone area had been afforded reasonable protection; considerable experience has been gained in planning, implementation and performance of flood warning, protection and control measures (CWC, 2007). Table 1.8 presents the flood affected area and damages for the period 1953 to 2004 in India as per Water Data Complete Book 2005 and Central Water Commission, 2007).

18 An Overview

Figure 1. 11: Flood hazard map of India

Source: BMTPC

19 Disaster Management in India

Mumbai Flood in 2006- Urban Flooding

Table 1.8: Flood affected areas and damages in India (1953 to 2004) Sl Item Unit Average Years Maximum No. During Damage (Year) (1953- 2004) 1 Area Affected Million Hectare 7.63 1978 17.50 2 Population affected Million 32.92 1978 70.45 3 Human Lives Lost No. 1597 1977 11316 4 Cattle Lost In thousands 94 1979 618 5 Cropped Area Affected Million Hectare 3.56 1988 10.15 6 Value of Damage Crops ` Crore 708.57 2000 4246.6 7 Houses Damaged Th. No. 1235.61 1978 3508 8 Value of Damage Houses ` Crore 251.05 1995 1307.9 9 Value of Damage Public ` Crore 813.69 2001 5604 Utilities 10 Value of total Damage to ` Crore 1817.07 2000 8864 Houses, Crops and Public Utilities

Source: Central Water Commission (FMP Directorate)

1.11.4 Floods occur in almost all rivers basins in India. The main causes of floods are heavy rainfall, inadequate capacity of rivers to carry the high flood discharge, inadequate drainage to carry away the rainwater quickly to streams/ rivers. Ice jams or landslides blocking streams; typhoons and cyclones also cause floods. Flash floods occur due to high rate of water flow as also due to poor permeability of the soil. Areas with hardpan just below the surface of the soil are more prone to, floods as water fails to seep down to the deeper layers.

20 An Overview

Floods in Uttarakhand in September 2010

1.11.5 Vulnerability to floods and other natural disasters is caused by the high population density, widespread poverty, unemployment, illiteracy, enormous pressure on rural land, and an economy traditionally dominated by agriculture. Children and women are particularly vulnerable. Eighty- five percent of the deaths during disasters are of women and children (Centre for Research on the Epidemiology of Disasters, CRED 2000). Presently there is an inadequate level of protection in the country against floods. Though non-structural measures improve the preparedness to floods and reduce losses, the necessity of structural measures would always remain to reduce the extent of physical damage caused by floods. In future, programme, flood control and management planning along with climate change need to be integrated into development planning for the country.

1.12 Tropical Cyclones9 1.12.1 The major natural disaster that affects the coastal regions of India is cyclone and as India has a coastline of about 7516 kms, it is exposed to nearly 10 percent of the world’s tropical cyclones. About 71 percent of this area is in ten states (Gujarat, Maharashtra, Goa, Karnataka, Kerala, Tamil Nadu, Puducherry, Andhra Pradesh, Orissa and West Bengal). The islands of Andaman, Nicobar and Lakshadweep are also prone to cyclones. On an average, about five or six tropical cyclones form in the Bay of Bengal and Arabian sea and hit the coast every year. Out of these, two or three are severe.

1.12.2 When a cyclone approaches to coast, a risk of serious loss or damage arises from severe winds, heavy rainfall, storm surges and river floods. The effect of a storm surge is most pronounced in wide and shallow bays exposed to cyclones such as in the northern part of Bay of Bengal. On an average, five or six tropical cyclones occur every year, of which two or three could be severe. Most cyclones occur in the Bay of Bengal followed by those in the Arabian Sea and the ratio is approximately 4:1. The incidence of cyclonic storms, with wind speeds between 65 Km/h and 117 Km/h and severe cyclonic storm with wind speeds between 119 Km/h and 164

21 Disaster Management in India

Figure 1.12: Cyclone Hazard Map

Source: BMTPC

22 An Overview

Km/h, reaching Tamil Nadu and Andhra Pradesh is high during the north east monsoon season ie. October – December, where as the highest annual number of storms, severe storms occur in the Orissa - West Bengal coast.

1.12.3 The yearly distribution of tropical cyclones in the north Indian Ocean indicates large year- to-year variations in the frequency of cyclonic disturbances and tropical cyclones, but no distinct periodicity. However, the trend indicates a slight decrease with time. The annual average of cyclonic disturbances in the North Indian Ocean is about 15.7 with a standard deviation of 3.1. The annual number of cyclonic disturbances range from seven in 1984 to twenty three in 1927. The annual average of tropical cyclones has varied from one in 1949 to ten in 1893, 1926, 1930 and 1976. The Cyclone hazard map of India may be seen in the Figure 1.12. gives the vulnerability map of hazard due to cyclone.

1.12.4 A severe super cyclonic storm with winds of upto 250 km/hour crossed the coast in Orissa on October 29, 1999. This may have been the worst cyclone of the country in the Orissa region and was responsible for as many as 10,000 deaths, rendering millions homeless and extensive damage to property and environment. Some of the disastrous tropical storms of India and Bangladesh are given in Table 1.9.

Table 1.9: Major Cyclones of India and Bangladesh

Year Name of the Country No. of Deaths Storm surge (Height in ft.) 1737 Hoogli, West Bengal (India) 3,00,000 40’ 1876 Bakerganj (Bangladesh) 2,50,000 10’-40’ 1885 False point (Orissa) 5,000 22’ 1960 Bangladesh 5,490 19” 1961 Bangladesh 11,468 16’ 1970 Bangladesh 2,00,000 13-17’ 1971 Paradeep, Orissa (India) 10,000 7’-20’ 1977 Chirala, Andhra Pradesh 10,000 16’-18’ 1990 Andhra Pradesh 990 13’-17’ 1991 Bangladesh 1,38,000 7’-20’ 1998 Porbander cyclone 1,173 -- 1999 Paradeep, Orissa 9,885 30’

Source: IMD Disastrous weather Events annual reports

1.13 Heat Wave10 1.13.1 Extreme positive departures from the normal maximum temperature result in a heat wave during the summer season. The rising maximum temperature during the pre-monsoon months often continues till June, in rare cases till July, over the northwestern parts of the country. Table 1.10 gives the number of heat waves observed in India during 1911-1999.

23 Disaster Management in India

Table 1.10: Number of Heat Waves in India

State Epochs 1911-67 1968-77 1978-99 2000-2009** 1911-2009 West Bengal 31 2 28 6 67 Bihar 76 9 28 4 117 Uttar Pradesh 105 6 23 - 134 Rajasthan 27 3 42 14 56 Gujarat, Saurashtra & Kutch 43 1 7 2 53 Punjab - 2 - 6 8 Himachal Pradesh - 1 - 1 2 Jammu & Kashmir - - - - - Maharashtra 26 5 35 12 78 Madhya Pradesh 32 4 15 5 56 Orissa 25 8 18 22 73 Andhra Pradesh 21 - 3 2 26 Assam - 4 19 - 23 Haryana, Delhi & Chandigarh - 1 2 2 5 Tamil Nadu 5 - 2 1 8 Karnataka - - - 1 -

Source: IMD Disastrous weather Events annual reports; EMDAT Note: Epoch is defined as number of events.

1.13.2 In recent years, heat wave induced casualties have some what increased. Abnormally high temperatures were observed during April 2002 across the country. On 10th May 2002, the maximum temperature at Gannavaram (Vijayawada) 49°C (WMO 2003) was recorded. Decrease in the Diurnal Temperature Range (DTR) due to urbanisation is a new factor leading to human

Table 1.11: Deaths due to Heat Waves in India

Year No of Deaths Year No of Deaths Year No of Deaths 1979 361 1989 44 1999 126 1980 156 1990 2 2000 57 1981 72 1991 252 2001 70 1982 16 1992 114 2002 806 1983 185 1993 42 2003 1539 1984 58 1994 434 2004 117 1985 142 1995 412 2005 587 1986 156 1996 20 2006 135 1987 91 1997 20 2007 476 1988 637 1998 1662 2008 294 Source- IMD Report

24 An Overview mortality and discomfort. Increased minimum temperatures in summer do not allow the necessary nocturnal cooling to neutralize the high maximum temperature during a heat wave epoch. Table 1.11 gives the details of the death due to the heat waves in India.

1.14 Cold Wave and Fog11 1.14.1 Occurrences of extreme low temperature in association with incursion of dry cold winds from north into the sub continent are known as cold waves. The northern parts of India, specially the hilly regions and the adjoining plains, are influenced by transient disturbances in the mid latitude westerlies which often have weak frontal characteristics. These are known as western disturbances. The cold waves mainly affect the areas to the north of 20°N but in association with large amplitude troughs, cold wave conditions are sometimes reported from states like Maharashtra and Karnataka as well. Table 1.12 gives the frequencies of the occurrence of cold waves in different parts of the country for different periods. In recent years due to deterioration of the air quality in urban locations of India the deaths and discomfort from cold waves have been substantial. UP and Bihar rank the highest in terms of casualties from cold wave and this could be due to poor level of development and lack of shelters to the outdoor workers and farmers.

Table 1.12: Number of Cold Waves in India Epochs 1901-10 1911-67 1968-77 1978-99 2000- 1901-2009 2009** West Bengal 2 14 3 28 7 54 Bihar 7 27 8 67 12 121 Uttar Pradesh 21 51 8 47 13 140 Rajasthan 11 124 7 53 12 207 Gujarat, Saurashtra & 2856 6 99 Kutch Punjab 3 34 4 19 10 70 Himachal Pradesh - - 4 18 4 26 Jammu & Kashmir 1 189 6 15 2 213 Maharashtra - 60 4 18 1 83 Madhya Pradesh 9 88 7 12 1 117 Orissa 4 5 - - 3 15 Andhra Pradesh 2 - - - - 2 Assam 1 1 - - 2 4 Haryana, Delhi & - - 4 151534 Chandigarh Tamil Nadu ------Karnataka - 10 - - - 10 Jharkhand - - - - 1 1

Source: IMD Disastrous weather Events annual reports; EMDAT Note: Epoch is defined as number of events.

25 Disaster Management in India

1.15 Thunderstorm, Hailstorm and Dust Storm12 1.15.1 As winter season transforms into spring, the temperature rises initially in the southern parts of India, giving rise to thunderstorms and squally weather which are hazardous in nature. While the southernmost part of the country is free from dust storms and hailstorms, such hazardous weather affectsthe central, northeastern, north and northwestern parts of the country. The hailstorm frequencies are highest in the Assam valley, followed by hills of Uttarakhand, Jharkhand and Vidarbha Maharashtra (Philip & Daniel 1976). However, thunderstorms also occur in Kolkatta, Delhi, Jaipur and Ahmedabad. Tornadoes are rare in India but some of them are quite devastating. Some of other tornadoes which caused extensive damage and destruction in the country is given in the Table 1.13.

Table 1.13: Past Incidences of Tornadoes

Sl.No Event Date and years Place Loss of Injured Homeless life 1 Tornado 19th April 1963 Cooch Bihar, West Bengal, 139 - 3760 India 2. Tornado 1st April 1977 Dhaka, Bangladesh 500 6000 - 3. Tornado 12 April 1983 Gaighata, West Bengal, India 28 500 - 4. Tornado 19th October 1987 Chapra, India 20 517 - 5. Tornado 9th April 1993 Kanthi in WB, India 50 180 -

Source: IMD Disastrous weather Events annual reports

1.16 Earthquakes13 1.16.1 Globally, earthquakes result in a loss of about 50,000 lives every year. Earthquakes over 5.5 magnitude on the Richter scale are progressively damaging to property and human life. However, there are many other factors that influences the damage pattern. Massive earthquakes generally occur near the junction of two tectonic plates, e.g., along the Himalayan range, where the Indian plate goes below Eurasian plate. The Indian sub- continent situated on the boundaries of two continental plates is very prone to earthquakes. Some of the most intense earthquakes of the world have occurred in India. Fortunately, none of these have occurred in any of the major cities. According to latest seismic zoning map brought out by the Bureau of Indian Standard (BIS), over 65 percent of the country is prone to earthquake of intensity Modified Mercalli Intensity Scale (MSK) VII or more. 1.16.2 India has been divided into four seismic zones according to the maximum intensity of earthquake expected (Figure 1.13). Of these, zone V is the most active which comprises of whole of Northeast India, the northern portion of Bihar, Uttarakhand, Himachal Pradesh, J&K, Gujarat and Andaman & Nicobar Islands. India has highly populous cities and the constructions in these cities are not earthquake resistant. Regulatory mechanisms are weak, thus any earthquake striking in one of these cities would turn into a major disaster. Six major earthquakes have struck different parts of India over a span of the last 15 years. 1.16.3 The entire Himalayan Region is considered to be vulnerable to high intensity earthquakes of a magnitude exceeding 8.0 on the Richter Scale, and in a relatively short span of about 50 years, four such major earthquakes have occurred in the region: Shillong, 1897 (M8.7); Kangra, 1905

26 An Overview

Figure 1.13: Earthquake hazard map of India

Source: BMTPC

27 Disaster Management in India

Damaged structure due to earthquake- Gujarat 2001 (M.8.0); Bihar–Nepal, 1934 (M 8.3); and Assam–Tibet, 1950 (M 8.6). Scientific publications have warned that very severe earthquakes are likely to occur anytime in the Himalayan Region, which could adversely affect the lives of several million people in India. Some significant earthquakes in India are listed in the Table 1.14.

Table 1.14: Some Significant Earthquakes in India Date Epicenter Location Magnitude Lat (Deg. N) Lat (Deg. E) 16 June 1819 23.6 68.6 Kutch, Gujarat 8.0 10 June 1869 25 93 Near Cachar, Assam 7.5 30 May 1885 34.1 74.6 Sopor, J&K 7.0 12 June 1897 26 91 Shilong Plateau 8.7 04 April 1905 32.3 76.3 Kangra, HP 8.0 08 July 1918 24.5 91.0 Srimangal, Assam 7.6 02 July 1930 25.8 90.2 Dhubri, Assam 7.1 15 Jan 1934 26.6 86.8 Bihar- Nepal Border 8.3 26 June 1941 12.4 92.5 Andaman Island 8.1 23 Oct 1943 26.8 94.0 Assam 7.2 15 Aug 1950 28.5 96.7 Arunachal Pradesh- China Border 8.5 21 July 1956 23.3 70.0 Anjar, Gujarat 7.0 10 Dec 1967 17.37 73.75 Koyna, Maharastra 6.5 19 June 1975 32.38 78.49 Kinnuar, HP 6.2 06 Aug 1988 25.13 95.15 Manipur-Myanmar Border 6.6 21 Aug 1988 26.72 86.63 Bihar- Nepal Border 6.4 20 Oct 1991 30.75 78.86 Uttarkhashi, Uttarakhand 6.6 30 Sept 1993 18.07 76.62 Latur- Osmanabad, Maharshtra 6.3 22 May 1997 23.08 80.06 Jabalpur, MP 6.0 29 Mar 1999 30.41 79.42 Chamoli Dist, UK 6.8 26 Jan 2001 23.40 70.28 Bhuj, Gujarat 7.7 08 Oct 2005 34.49 73.15 Kashmir 7.6 Source: IMD

28 An Overview

1.17 Landslides14 1.17.1 Landslides mainly affect the Himalayan region and the western ghats of India. Landslides are also common in the Nilgiri range. It is estimated that 30 percent of the world’s landslides occur in the Himalayas. The Himalayan mountains, which constitute the youngest and most dominating mountain system in the world, are not a single long landmass but comprises a series of seven curvilinear parallel folds running along a grand arc for a total of 3400 kilometers. Due to its unique nature, the Himalayas have a history of landslides that has no comparison with any other mountain range in the world. Landslides are also common in western ghat. In the Nilgiris, in 1978 alone, unprecedented rains in the region triggered about one hundred landslides which caused severe damage to communication lines, tea gardens and other cultivated crops. A valley in Nilgiris is called “Avalanches Valley”. Scientific observation in north Sikkim and Garhwal regions in the Himalayas clearly reveal that there is an average of two landslides per sq. km. The mean rate of land loss is to the tune of 120 meter per km per year and annual soil loss is about 2500 tones per sq km. Fig 1.14 shows the landslide hazard zones in India

1.17.2 Landslides constitute a major natural hazard in our country, which accounts for considerable loss of life and damage to communication routes, human settlements, agricultural fields and forest lands. Based on the general experience with landslides, a rough estimate of monetary loss is of the order of ` 100 crore to ` 150 crore per annum at the current prices for the country as a whole.

Landslide at Darjeeling, 2010 Source: Save the Hills Organisation

29 Disaster Management in India

Figure 1.14: Landslide hazard zones in India

Source: BMTPC

1.18 Industrial and Chemical Disasters15 1.18.1 Industrial disasters include events that occur due to mishaps or failures in industry or related activities and also the disasters that affect the industrial functions, property and productivity. ‘Chemical Disasters’ and ‘Industrial Disasters’ are terms often used interchangeably but are actually a sub-category of the other. A chemical disaster may occur due to both, natural or human-made sources, however, in view of growing chemical usage and industrial development worldwide, the pre-disaster prevention and mitigation of chemical (industrial) disasters is a

30 An Overview serious concern. It is estimated that there are currently over 1949 Major Accident Hazards units in India besides other small and medium–sized industries, in huge numbers, all across the nation. New industries are also coming up at a rapid rate. A year wise list of chemical disasters for past decade may be seen in Table 1.15. 1.18.2 Industrial disaster: Industrial disasters are disasters caused by chemical, mechanical, civil, electrical or other process failures due to accident, negligence or incompetence, in an industrial plant which may spill over to the areas outside the plant or with in causing damage to life, property and environment. 1.18.3 Chemical disaster: Chemical disasters are occurrence of emission, fire or explosion involving one or more hazardous chemicals in the course of industrial activity (handling), storage or transportation or due to natural events leading to serious effects inside or outside the installation likely to cause loss of life and property including adverse effects on the environment. “Chemical accident or emergency can result in extensive damage to the environment with considerable human and economic costs. Chemical and industrial emergencies may arise in a number of ways, such as -

‡ Explosion in a plant ‡ Accidents in treatment plants ‡ Accidents in storage facilities of chemicals ‡ Technological system failures ‡ Accidents during the transportation of ‡ Failures of plant safety design chemicals, misuse of chemicals ‡ Arson and sabotage ‡ Improper waste management ‡ Human error

Table 1.15: Year wise Chemical disasters in past decade SL No. Year No. of No. of No. of States where the incidents were recorded incidents Deaths injured 1. 2002 06 05 31 Gujarat, Kerala, Maharashtra 2. 2003 06 11 112 Andhra Pradesh, Assam, Kerala, Madhya Pradesh, Punjab 3. 2004 18 47 91 Andhra Pradesh, Gujarat, Haryana, Kerala, Madhya Pradesh, Maharashtra, Punjab, Tamil Nadu, Uttarakhand, West Bengal, Delhi 4. 2005 11 15 14 Andhra Pradesh, Assam, Gujarat, Kerala, Tamilnadu, Uttar Pradesh 5. 2006 16 32 24 Andhra Pradesh, Gujarat, Kerala, Maharashtra, Rajasthan, Uttarakhand, Uttar Pradesh, West Bengal 6. 2007 18 37 14 Assam, Gujarat, Kerala, Madhya Pradesh, Maharashtra, Punjab, Uttarakhand, West Bengal 7. 2008 23 50 148 Andhra Pradesh, Gujarat, Jharkhand, Kerala, Maharashtra, Uttar Pradesh 8. 2009 24 50 128 Andhra Pradesh, Assam, Haryana, Kerala, Madhya Pradesh, Punjab, Rajasthan, Uttar Pradesh, Uttarakhand, West Bengal 9. 2010 08 12 01 Andhra Pradesh, Assam, Maharashtra, Punjab, Uttar Pradesh 10. Total 130 259 563 Source: Ministry of Environment and Forests

31 Disaster Management in India

1.19 Tsunami 1.19.1 Tsunamis and earthquakes happen after centuries of energy build up within the earth. A tsunami (in Japanese ‘tsu’ means harbor and ‘nami’ means wave) is a series of water waves caused by the displacement of a large volume of a body of water, usually an ocean. In the Tamil language it is known as “Aazhi Peralai”. Seismicity generated tsunamis are result of abrupt deformation of sea floor resulting vertical displacement of the overlying water. Earthquakes occurring beneath the sea level, the water above the reformed area is displaced from its equilibrium position. The release of energy produces tsunami waves which have small amplitude but a very long wavelength (often hundreds of kilometer long). It may be caused by non-seismic event also such as a landslide or impact of a meteor.

1.19.2 Characteristics: Tsunami in the deep ocean may have very long waves length of hundred of kilometer and travels at about 800 km per hour, but an amplitude of only about 1 km. It remains undetected by ships in the deep sea. However when it approaches the coast its wavelength diminishes but amplitude grows enormously, and it takes very little Box 1. 3: Historical Tsunamis in India time to reach its full height. Computer model can provide tsunami arrival, usually Tsunami Sources for India t
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Box 1. 4: Tsunami in Indian Ocean

The Tsunami of 26th December 2004 caused extensive damage to life and property in the states of Tamil Nadu, Kerala, Andhra Pradesh, UTs of Puducherry and Andman & Nicobar Islands (A & NI). The Tsunami disaster had badly affected the fishermen community who not only lost their near and dear ones but also lost their means of livelihood. A population of 26.63 lakhs in 1396 villages in five states and UTs was affected by this disaster. Almost 9395 people lost their lives and 3964 people were reported missing and feared dead. Most of the missing persons were from Andaman & Nicobar Islands.

32 An Overview

Figure 1.15: Potential Tsunamigenic zones

Source: INCOIS

1.19.4 Tsunami Risk Assessment17: A preliminary risk assessment has been done for the Indian Coast w.r.t. tsunamis taking into account the seismo-tectonic setting, historical seismicity and past tsunami events. The east and west coasts of India and the island regions are likely to be affected by Tsunamis generated mainly by subduction zone related earthquakes from the two potential source regions, viz., the Andaman-Nicobar-Sumatra Island Arc and the Makran subduction zone north of Arabian Sea. Depending upon the location of the Earthquake, the response time for evacuation of coastal population could range between 10 minutes to a few hours (Figure 1.16). Tsunami modeling studies indicate that the least response time available is for the Andaman & Nicobar Islands which are situated right on the subduction zones capable of triggering tsunamigenic earthquakes. Considering that a credible worst case earthquake of 7.5 or higher occurs near Nicobar, the

33 Disaster Management in India

Figure 1.16: Tsunami travel times & response time

Source: INCOIS

34 An Overview travel time to the nearest coast in Nicobar would be approximately 20 – 30 minutes and for the Indian mainland about 2 – 3 hours. For earthquakes occurring near Indonesia, the travel time to Andaman & Nicobar would be in the range of 1 – 2 hours and to the Indian mainland about 3 – 5 hours. For earthquakes occurring off Makran, the travel time to the nearest Indian coast (Gujarat) would be about 2 – 3 hours. A table showing typical travel times of tsunami waves to a few Indian Coastal locations for 4 historic events is illustrated in Table 1.16.

Table 1.16: Tsunami travel time

EQ Location EQ Location EQ Location EQ Location Northern Sumatra Java Andaman Makran 93.9 E 4.33 N 102.8 E 4.4 S 92.1 E 9.1 N 63.4 E 25.1 N Dec 2004 Aug 1977 June 1941 Nov 1945 9.3 M 8.3 M 7.7 M 8.1 M Coastal Location Tsunami Travel Times Indira Point 20 Min 160 Min 30 Min NA Port Blair 90 Min 230 Min 30 Min NA Chennai 170 Min 300 Min 140 Min NA Visakhapatnam 180 Min 320 Min 150 Min NA Kochi 250 Min NA NA 240 Min Gujarat 430 Min NA NA 105 Min Mumbai 440 Min NA NA 230 Min Source: INCOIS

Box 1.5: Cascading effect of Disaster – Earthquake, Tsunami, fire and nuclear disaster: Japan Experience16 Event of one kind of Disaster sometimes lead to a cascading effect and untold other disasters. The preparedness to respond to such unforeseen chain of events is difficult to visualize and plan and is going to be one of the challenges to managers engaged in DRR. Recent experiences of earthquake in Japan leading to Tsunami, fire and then nuclear emergency are an eye opener to those underestimating the might and fury of nature. i. Earthquake On 11th March 2011, at 14:46 the northeastern part of Japan was triggered by a major earthquake of magnitude 9 with an epicenter at 130 km off the pacific coast of Tohoku region and depth of Source: National Geographic News

35 Disaster Management in India

24 km. As per the Japan Meteorological Agency (JMA), the seismic intensity of 7[in the Japanese scale of 1 to 7] was recorded in Kurihara city of Miyagi prefecture. Moreover, the intensity of 6+ was recorded in 28 cities and towns in Miyagi, Fukushima, Ibaraki, and Tochigi prefacture. It also included Wakuya town, Tome city and Osaki city. Intensity of 6 or weaker was observed in different parts of the country. ii. Tsunami It was followed by a major Tsunami, with maximum height of 11.87 meter recorded near the coast of Akamae at 15:31 JST, Major tsunami of more than 3 m or more arrived in northern part of Japan: eastern, central, western part of pacific coast of Hokkaido, Pacific coast of Aomori, Iwate, Miyagi, Fukushima, Ibaraki, Chiba prefecture, Kujukuri, & Sotoboare and Izu islands. The earthquake in Japan also triggered warning in other countries such as Taiwan, Indonesia, Russia, Philippines, the pacific Islands, and as far away as Hawaii, Mexico and Colombia. The earthquake happened in 14:46, and the tsunami warning was issued at 14:49, and it was on the JMA website on 14:49. The hypo-central region of this earthquake extends from offshore Iwate prefecture to offshore Ibaraki prefecture so that the most effected area were Iwate prefecture, Myagi prefecture, Fukushima prefecture and Ibaraki prefecture The Japanese Meteorological Agency said that the earthquake may have ruptured the fault zone from Iwate to Ibaraki with a length of 500 km and a width of 200 km. Following the 9.0 magnitude earthquake, massive waves of debris-filled water swept away buildings, cars, and ships. Fires occurred in several cities and nuclear power plants, refineries, airports, and parts of the transport networks were shut down. As of 23rd March, the resulted death was nearly 9,079, and 12,782 missing. The disaster also damaged 126,000 buildings, besides damaging other infrastructure, such as bridges, transportation system,

Tsunami at Natori, Japan Source: National Geographic News

36 An Overview

electricity, gas supplies, and communication services. Citigroup expects 5-10 trillion yen in damage to housing and infrastructure, while Barclays Capital estimates economic losses of 15 trillion yen ($183.7 billion) or 3 percent of Japan’s GDP. iii. Fire Events On 11th March, several fires’ resulted due to powerful earthquake triggered near the east coast of Honshu, the largest and main island of Japan. Fire broke out at Cosmo Oil Company refinery in Ichihara city. The fire continued till 14th March. The number of events increased after the first day of earthquake, when only 44 cases were recorded. It increased to 325 cases on 19th March. iv. Nuclear Emergency

Same day at 20:30 CET (04:30 JST), a nuclear emergency situation at the Fukushima Daiichi (number one) nuclear power plant was declared. Because of the intense earthquake all the three operating (out of six) reactors automatically began the process to be shut down. The back-up diesel generators for supplying the water to cool down the fuel rods inside the reactors due to the tsunami were damaged. The water available began to evaporate and at 15:30 JST on March 12 a first hydrogen explosion took place at the number one reactor and led the Japanese government to evacuate people within a 20 km radius around the Fukushima Daiichi power plant. On March 14 at 11:01 JST, another explosion took place in reactor number 3 at the Fukushima Daiichi nuclear power plant. At 06:14 JST on March 15, another explosion took place in the number 2 reactor at the Fukushima Daiichi nuclear power plant. And a fire broke out in the number 4 reactor where spent fuel rods were stored to undergo their cooling process, soon after the fire was extinguished. These incidents led to further increase of emission of radiation with levels up to 400 millisievert per hour near the site. (A person is normally not to be exposed to more than

Source: Fire at Yuriage in Natori, Japan Source: National Geographic News

37 Disaster Management in India

Nuclear Emergency at Fukushima, Daiichi Source: National Geographic News

2.4 millisivert per year!) Subsequently, the Japanese Government established a 30km radius “No Fly Zone” around the Fukhushima Daiichi nuclear power plant. On March 17, the helicopters’ water spraying supported by further units of the Self Defense Force (SDF) shot water from the ground, using heavy water cannon trucks, into the most troubled number 3 reactor which continued the following days. Meanwhile new power cables were installed to provide the reactors number 1 and 2 with energy to start-up again the cooling mechanisms. Increased radiation levels were reported in spinach, milk and tap water outside the demarcated 30km evacuation zone. Farmers were advised to voluntarily avoid distributing contaminated food into the markets.

V. Lessons

This recent event is a pointer to the need to have a multi-hazard approach and plan to handle unexpected disasters. Japan as a country is one of the best prepared countries, yet had to face the cascading impact of disasters starting from the large undersea earthquake, resultant Tsunami, fire and nuclear and energy related emergencies in addition to the disaster linked loss of life, livelihood assets etc. Soldiers of Japan Self-Defense Force and firefighters search for the victims in the rubbles in Matsushima, Miyagi Prefecture, Japan. Source: www.foxnews.com

38 An Overview

Extracts from the report- MEGA DISASTER IN A RESILIENT SOCIETY - The Great East Japan (Tohoku Kanto) Earthquake and Tsunami of 11th March 2011 - SYNTHESIS AND INITIAL OBSERVATIONS, International Environment and Disaster Management Graduate School of Global Environmental Studies Kyoto University, 25th March, 2011.

1.20 Stampede18 The term stampede is applied to a sudden rush of a crowd of people, usually resulting in many injuries and death from suffocation and trampling. In stampede, the term mob or crowd is used to refer to a congregated, active, polarized aggregate of people, which is basically heterogeneous and complex. Its most salient features include homogeneity of thought and action among its participants and their impulsive and irrational actions. 1.20.1 Causes: Incidents of stampedes can occur in numerous socio-cultural situations. These stampede incidents can be categorized into the following types, where the causes and the impact are described in the incident. Though the list is not exhaustive, it provides a fair idea about various types of situations where stampedes can occur.

x Entertainment events x Power failure x Escalator and moving walkways x Religious events x Food distribution x Fire incidents during religious/other events x Processions x Riots x Natural disasters x Sports events x Weather related

39 Disaster Management in India

The details of some of the major stampedes in India may be seen form the Table 1.17.

Table 1.17: Major Stampedes in India - 2005-2010

Month & Year Event No. of Deaths Injured January 2005: Hindu pilgrims stampede near a remote 265 temple in Maharashtra, India. December 2005: Flood relief supplies were handed out to 42 homeless refugees in southern India October 3, 2007 Train station in northern India 14 March 27, 2008 Indian temple crush during a pilgrimage 8 10 August 3, 2008 At the Naina Devi temple in Himachal 138 47 Pradesh September 30, 2008 At the Chamunda Devi temple in 147 Jodhpur, India. March 4, 2010 At Ram Janki Temple, in Kunda, India 71 200 January 14, 2011 At Sabarimala, Kerala 104 50

Source: NIDM 1.21. Nuclear Emergencies19 1.21.1 Nuclear emergency /Disaster is caused due to an extraordinary release of radioactive material or radiation either in the operation of nuclear reactors or other nuclear events like explosion of a Radiological Dispersal Device (RDD) or Improvised Nuclear Device (IND) or explosion of a nuclear weapon. It is accompanied with sudden release of harmful radiations or radioactive materials or both together in to the environment.

(i) Nuclear emergency may be encountered in the following situations: Intentional use of nuclear weapons in the event of war: Nuclear attacks may make use of nuclear weapons, which are extremely destructive and powerful enough to destroy an entire city. With the advancement of scientific research in the world, several countries have acquired the technology to produce nuclear weapons, which are more destructive and harmful than the atom bomb used more than half a century ago against Japan during the Second World War.

(ii) Accidents in nuclear power project: The nuclear Power Plants take care of safety by Engineered safety features by design and redundancy in safety systems to prevent any mal-operations and to bring the system to a safe shut down in case of any abnormalities. However, in case of a major malfunction, there is a remote possibility of release of radioactivity/ radiation to the environment. The area affected would depend on the amount of the release, and wind direction, speed and weather conditions.

(iii) Accidents in handling radiation sources :Other accidental exposure of radiation could be due to accident with the radioactive material during transportation, wrong/faulty practices, failure of machinery of a radiation facility etc. A brief summary of the accidents between 1987 to 2010 are given in Table 1.18.

40 An Overview

Table 1.18: Incidents in Nuclear Facilities in India

Date & Month Place Event 4 May 1987 Kalpakkam, India In an incident during refueling of FBTR, structural deformation happened in some of the fuel assemblies. There was no release of radioactivity. The reactor remained shut down for about two years for restoration which involved development of special tools, inspection and removal of affected fuel assemblies. 13 May 1992 Tarapur, Maharashtra, India There was a minor tube leak in one heat exchanger which was subsequently replaced. Radioactivity released was within the regulated limits 31 Mar 1993 Bulandshahr, Uttar Pradesh, A fire occurred in Turbine building which is not a India part of reactor system. This resulted in damage of the steam turbine blades. The reactor was brought to safe shutdown state. The unit was restarted after Regulatory approval 22 Oct 2002 Kalpakkam, India About 75 kg of sodium from primary sodium purification line at Fast Breeder Test Reactor leaked inside the purification cabin. There was no fire or any release of radioactivity. April 2010 Mayapuri, Delhi India In a radiological accident, an irradiator was sold to metal scrap dealer. The dealer dismantled the irradiator which caused release of radioactive source resulting the exposure to a worker in the shop leads to one fatality

Source: Babha Automic Research Centre, Mumbai 1.21.3 Radiation releases due to any reason can be devastating - Chernobyl is a good example. With modern reactor design, a catastrophic release of radiation is highly unlikely, but nevertheless, possible. This can happen due to factors beyond the control of the operating agencies e.g., human error, system failure, sabotage, earthquake, cyclone, flood and tsunami etc. 1.22 Road Accidents18 1.22.1 The rapid expansion of road transport has brought with it the challenge of addressing adverse factors such as the increase in road accidents. Road accidents are a human tragedy. It involves high human suffering and monetary costs in terms of premature deaths, injuries, loss of productivity etc. Most deaths and injuries due to road accidents are invisible to society. They are a hidden epidemic. In India, motor vehicles including two wheelers are growing at a faster rate then the economic and population growth.

1.22.2 Global Status Report on Road Safety (WHO, 2009) has estimated that 1.2 million people die on the world’s road every year, and as many as 50 million others are injured. Over 90% of deaths occurred in low income and middle income countries, which have only 48% of the world’s registered vehicles. The problem of road safety is acute in India. In the year 2008 alone, number of road accidents were 4.8 lakh resulting in close to 1.2 lakh deaths and 5.2 lakh injured, many of whom are disabled for rest of their lives. Sadly, many of these victims are economically active young people.

41 Disaster Management in India

1.22.3 Trends in accidents, injuries, fatalities, motor vehicles & road network: Between 1970 and 2008, the number of accidents quadrupled with more than 7 fold increase in injuries and more than 8 fold increase in fatalities in the backdrop of about 64 fold increase in the number of registered motor vehicles and threefold increase in road network. 1.22.4 Profile of road accidents: The proportion of fatal accidents in the total road accidents has consistently increased since 2001 as reflected in Table 1.19 and 1.20. The severity of road accidents measured in terms of persons killed per 100 accidents is observed to have increased from less than 20 in 2001 to 24.7 in 2008.

Table 1.19: Number of Accidents and Number of Persons Involved : 2001 to 2008

Year Number of Accidents Number of Persons Accident Severity* Total Fatal Killed Injured 2001 405637 71219 (17.6) 80888 405216 19.9 2002 407497 73650 (18.1) 84674 408711 20.8 2003 406726 73589 (18.1) 85998 435122 21.1 2004 429910 79357 (18.5) 92618 464521 21.5 2005 439255 83491 (19.0) 94968 465282 21.6 2006 460920 93917 (20.4) 105749 496481 22.9 2007 479216 101161 (21.1) 114444 513340 23.8 2008 (P) 484704 106591 (22.0) 119860 523193 24.7 (P): Provisional; Source: Information supplied by States/UTs. Figures within parenthesis indicate share of fatal accidents (i.e. involving death) to total accidents. * Accident Severity : No. of Persons Killed per 100 Accidents

Source: Transport Research Wing, Ministry of Road Transport & Highways, GOI

Figure 1.17 shows that there is increasing trend in road accidents and death from year 2001 - 2008. Figure 1.17: Graphic presentation showing number of 1.22.5 Road Accidents: Inter State accidents and person killed (2001-2008) Comparisons: Maharashtra, Tamil Nadu and Karnataka which had a share of around 30.4 % in total 600000 number of vehicles registered in India in 2006, accounted for about 500000 38% of the total road accidents , 28 % 400000 of the total number of persons killed and 35% of the total persons injured 300000 Total no of accident in road accidents in year 2008 (Table Killed 1.17). 200000

100000

0 2001 20022003 20042005 2006 20072008

42 An Overview

Table 1.20: All India Share of Select States (in %): Road Accidents and Registered Motor Vehicles

State/UT 2005 2006 2007 2008(P) Top 5 States: Share in Total Number of Road Accidents (in %) Share of 5 States 54.4 55.4 55.4 55.4 1 Maharashtra 16.5 16.4 15.4 15.6 2 Tamilnadu 12.3 12 12.3 12.5 3 Karnataka 9.2 9.4 9.7 9.5 4 Madhya Pradesh 8 8.3 8.8 9 5 Andhra Pradesh 8.5 9.5 9.2 8.8 Share of the above 5 States in total 43.3 43.6 - - Registered Vehicle Source: Transport Research Wing, Ministry of Road Transport & Highways, GOI 1.22.6 Classification of Accidents: National Highways accounted for 29% in total road accidents and 36% in total number of persons killed in 2008. Similarly, State Highways accounted for 26%of total accidents and a share of close to 28 % in the total number of persons killed in road accidents in 2008 (Table 1.21). Highways permit greater speed resulting in relatively greater number of road accidents and fatalities.

Table 1.21: Number of Accidents, persons killed & injured as per road classification (2008)

Road Classification National Highways State Highways Other Roads No. of Accidents 137995 (28.47) 123972 (25.58) 222737 (45.95) No. of Persons Killed 42670 (35.60) 34081 (28.43) 43109 (35.97) No. of Persons Injured 149693 (28.61) 143708 (27.47) 229792 (43.92) Note: Figures within parenthesis indicate share in total accidents, killed and injured in the respective road categories.

Figure 1.18 shows that, there is increased percentage of accidents in other roads than the national state highways and Figure 1.19 shows that there is loss of life similar to other road and national highways but less life loss in state highways.

Figure 1.18: No. of Accidents as per raod Figure 1.19: No. of Persons Killed as per road classification in 2008 classification in 2008

28.47% 35.60% 45.95% 35.97% 25.58% 28.43%

National Highway State Highways Other Roads

43 Disaster Management in India

1.22.7 International Comparisons of Road Traffic Injury, Accidents and Deaths:Cross country comparisons of incidence of road accident related deaths and injury accidents per lakh persons as per World Road Statistics 2009 (published by International Road Federation, Geneva) shows lower incidence of both the parameters for India in comparison to many developed and developing countries. The number of road accident deaths per lakh of population at 10.5 in India was much lower compared with 12.72 in Korea and 13.68 in USA. Similarly, injury accidents per lakh of population for both in India and China were substantially lower at around 36.69 and 24.82 respectively when compared to U.K. (298.54), USA (579.68), France (131.75), Germany (408.23). 1.23 Rail Accidents21 1.23.1 Based on the definition of the Disaster Management Act 2005, Ministry of Railways has adopted the following definition on Railway Disaster: “Railway Disaster is a serious train accident or an untoward event of grave nature, either on railway premises or arising out of railway activity, due to natural or human-made causes, that may lead to loss of many lives and /or grievous injuries to a large number of people, and/or severe disruption of traffic etc, necessitating large scale help from other government/non-government and private organizations.” 1.23.2 Nodal Department for policy Formulation on DM on Indian Railways: The preparation of Disaster Management Plan on Indian railways and on the Zonal Railways in coordination with the different Departments of the Railway, other Central/State Govt. agencies, NGOs, private agencies, etc. has to be done by the Safety Department in the railway Board, on the Zonal Railway and Divisions. Railway Board has approved the nomination of GMs, AGMs or CSOs (when GM/ AGM is not available) for declaring an untoward incident as a Railway Disaster. 1.23.4 Train accident analysis: The statistics of the death and injured in the consequential train accidents during the last ten years are given in Table 1.22:

Table 1.22: Train Accidents in India between 1999-2009

Year Collisions Derail- LC Fire Misc Death Injured Total Acct./ ments Accidents MTKm 1999-00 20 329 93 21 - 616 1121 463 0.65 2000-01 20 350 84 17 2 216 488 473 0.65 2001-02 30 280 88 9 8 326 808 415 0.55 2002-03 16 218 96 14 7 418 982 351 0.44 2003-04 9 202 95 14 5 294 492 325 0.41 2004-05 13 138 70 10 3 236 412 234 0.29 2005-06 9 131 75 15 4 315 627 234 0.28 2006-07 8 96 79 4 8 208 402 195 0.23 2007-08 8 100 77 5 4 186 412 194 0.22 2008-09 13 85 69 3 7 207 416 177 0.20

Source: Safety Railway Board, Ministry of Railways There is a visible decreasing trend in rail accidents and deaths from the year 1999-2009 as shown in Figure 1.20. It shows that there is a better preparedness and latest technologies has helped in reducing the train accidents and subsequent deaths.

44 An Overview

Figure 1.20: Graphical presentation of Train accident: number of accidents and deaths (1999-2009) 700

600 616

500 463 473 Total no. of accidents 415 418 Deaths 400 351 325 300 326 315 234 294 234 207 208 194 200 236 216 195 186 177 100

0

1.24 Air Accidents22 1.24.1 Air accidents are by and large of four types; mid-air collisions, forced landings, crash due to technical snags and air-crash in mountainous terrain due to poor visibility. While air accidents can occur at any time and at any place, areas within about 30 – 40 kms. radius of airports are most vulnerable. Experience shows that a majority of air accidents occur either during take-off or landing near major airports where flight paths get congested. In addition, air accidents also take place at remote inaccessible places like forests, hilly and mountainous regions, high seas, etc. Accidents to Indian Civil Registered Aircraft from 1990 to 2000 may be seen in Table 1.23. 1.24.2 Causes: Causes of air accidents are either human failure of pilots, air traffic controllers or technical failures of on board, landing instruments. In rare cases, it may also be the result of terrorist activities. Table 1.23: Accidents to Indian Civil Registered Aircraft from 1990 to 2000

S/N Date/ Place A/c Type/Regn. Operator Fatalities Damage Details 1. 14/02/1990 Airbus A-320 VT-EPN Indian Airlines 92 Destroyed Banglore 2. 16/08/1991, Boeing 737 VT Indian Airlines 69 Destroyed Imphal 3. 05/09/1991, Pushpak MK -1 Delhi Flying Club 2 Patiala

45 Disaster Management in India

S/N Date/ Place A/c Type/Regn. Operator Fatalities Damage Details 3. 26/04/1993, #PFJOH

75
&$2 Indian Airlines 55 Destroyed Aurangabad 4. 11/07/1996, L-410, VT-ETC Archna Airways 9 Destroyed Near Kullu 5. 12/11/1996, B-747 & IL-76 Saudi Arabian 349 Destroyed New Delhi SV-763 & KZ- 1907 Kazakhstan 6. 17/7/2000, B-737-200 VT-EGD Alliance Air 60 Destroyed Patna 7. 29/7/2000, Super King Air B 200 VT-EIE Aerial Svc. Pvt. Ltd 5 Destroyed Near Mandi, HP 8. 4 September Air India flight 829, a Air India 21 Injured Partially 2009, Boeing 747-400 damaged Chhatrapati Shivaji International Airport, Mumbai 9 22, May 2010, Flight No. 812, Boeing 737- Air India 158 died Destroyed Manglore, 800 International Airport

Source: Director General Civil Aviation (DGCA)

1.25 Mine Disasters23 1.25.1 Mines Act, 1965 defines Disaster as an act Accident (unexpect event) causing loss of more than 10 lives. A mining accident is an accident that occurs in the process of mining minerals. The Act categories an accident involving loss of lives less than 10 major accident. Thousands of miners die from mining accidents each year, especially in the process of coal mining and hard rock mining. One of the greatest mining disasters in Indian mines occurred on 27 December 1975 due to water in rush from old abandoned incline working to a deep shaft mine working of Chasnallah Colliery leading to death of 375 miners.

1.25.2 Following types of mining disasters, losses and impacts are classified by the DGMS.

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1.25.4 The details of disasters involving 10 or more fatalities in both coal & Non coal mines in India are given in the Table 1.24 and 1.25.

46 An Overview

Table 1.24: Detail of Disasters (more than 10 fatalities) in Coal Mines during 1901- 2010 in India Sl. No. Date of Accident Name of Mine Killed S/Injured Brief Cause 1 16-Jun-1908 Nadir Khas 20 0 Explosions of fire-damp 2 7-Feb-1910 Dishergarh 11 0 Explosion of fire-damp 3 15-Oct-1910 Sitalpur 12 0 Fall of roof 4 26-Nov-1910 Namdang 14 4 Explosion of fire-damp 5 9-Nov-1911 Kendwadih 14 0 Explosion of fire-damp 6 11-Jul-1912 phularitand 21 0 Irruption of water 7 28-Jun-1913 Jotejanake 13 0 Irruption of water 8 22-Oct-1913 Chowrasi 27 0 Explosion of fire-damp 9 31-Aug-1915 Chanda 10 0 Miscellaneous on Surface 10 4-Feb-1916 Bhowra 24 0 Miscellaneous on Surface 11 20-Jul-1916 Dishergarh 14 4 Explosion of Fire-damp 12 18-Nov-1918 Dishergarh 10 4 Explosion of Fire-damp 13 24-Nov-1919 Kustore South 14 0 In Shaft (Rope/Chain Breaking) 14 28-Feb-1921 Amlabad 11 0 Explosion or Fire-damp 15 9-Mar-1922 Khost 13 3 Explosions 16 4-Jan-1923 Parbelia 74 0 Explosion/Ignition of Firedamp 17 14-Apr-1923 Rawanwara 16 1 Fall of Roof 18 17-Feb-1931 Nongah 13 3 Explosives 19 16-Jan-1935 Loyabad 11 0 Irruption of Water 20 29-Jun-1935 Bagdigi 19 7 Explosion/Ignition of Firedamp 21 24-Jul-1935 Kurhurbaree 62 14 Explosion/Ignition of Firedamp 22 30-Jan-1936 Loyabad 35 0 Fire/Suffocation by Gases 23 18-Dec-1936 Poidih 209 0 Explosion/Ignition of Firedamp 24 6-Jul-1942 Makerwal 14 0 Irruption of Water 25 22-Feb-1943 Sodepur 9, 10 & 13 3 Fall of Roof 11 Pits 26 8-Oct-1943 Jhamuria 7 & 12 1 Sundries Underground 8 Pits 27 19-Mar-1946 Begunia 13 0 Explosion/Ignition of Firedamp 28 12-Jul-1952 Dhemo Main 12 0 Fall of Roof 29 5-Aug-1953 Majri 11 0 Irruption of Water 30 14-Mar-1954 Damra 10 0 Explosion/Ignition of Firedamp 31 10-Dec-1954 Newton Chikli 63 0 Irruption of Water 32 5-Feb-1955 Amlabad 52 1 Explosion of Inflamable Gas 33 26-Sep-1956 Burradhemo 28 0 Irruption of Water 34 19-Feb-1958 Chinakuri 1 & 176 7 Explosions 2 Pits 35 20-Feb-1958 Central 23 0 Irruption of Water Bhowrah 36 5-Jan-1960 Damua 16 0 Irruption of Water 37 28-May-1965 Dhori 268 9 Explosion of Coal Dust 38 11-Apr-1968 West Chirimiri 14 16 Fall of Sides

47 Disaster Management in India

Sl. No. Date of Accident Name of Mine Killed S/Injured Brief Cause 39 18-Mar-1973 Noonodih 48 13 Explosion/Ignition of Gas/Dust Jitpur 40 8-Aug-1975 Kessurgarh 11 1 Fall of Roof 41 18-Nov-1975 Silewara 10 1 Irruption of Water 42 27-Dec-1975 Chasnalla 375 0 Irruption of Water 43 16-Sep-1976 Central Saunda 10 0 Irruption of Water 44 4-Oct-1976 Sudamdih Shaft 43 3 Explosion/Ignition of Gas/Dust 45 22-Jan-1979 Baragolai 16 0 Explosion/Ignition of Gas/Dust 46 24-Jun-1981 Jagannath 10 4 Fire 47 16-Jul-1982 Topa 16 4 Fall of Roof 48 14-Sep-1983 Hurriladih 19 0 Inundation 49 25-Jan-1994 New Kenda 55 0 Fire 50 27-Sep-1995 Gaslitand 64 0 Irruption of Water 51 3-Mar-1997 New Moghla 10 12 Explosion/Ignition of Gas/Dust 52 24-Jun-2000 Kawadi 10 0 Fall of Sides Opencast Mine 53 2-Feb-2001 Bagdigi 29 0 Irruption of Water 54 16-Jun-2003 Godavari Khani 17 0 Irruption of Water No.7 LEP 55 17-Oct-2003 Godavari Khani 10 2 Fall of Roof No. 8A 56 15-Jun-2005 Central Sounda 14 0 Irruption of Water 57 6-Sep-2006 Bhatdee 50 0 Explosion/Ignition of Gas/Dust 58 6-May-2010 Anjan Hill 14 5 Other explosive accident Source: Directorate of Mines Safety Table 1. 25: Detail of Disasters (more than 10 fatalities) in Non-Coal Mines during 1901- 2010 Sl. Date of Name of Mine Killed S/Injured Brief Cuase No. Accident 1 6-Dec-1910 Shivrajpur Manganese 12 0 Fall of Sides 2 18-Sep-1920 Badwin Lead-Silver 11 0 In Shaft Ascending/ Descending 3 16-May-1929 Bawdwin Silver-Lead- 10 0 Fall of Roof Zinc 4 12-Apr-1932 Lady Rangi Mica 19 0 Suffocation by Gases 5 19-Apr-1952 Champion Reef Gold 20 4 Rock Burst 6 30-Jun-1952 Champion Reef Gold 10 5 Rock Burst 7 27-May-1955 Champion Reef Gold 10 8 Rock Burst 8 29-Sep-1957 Rajupalem Barytes 11 2 Fall of Sides 9 28-Aug-1994 Rajpura Dariba Galena 13 0 Irruption of Water & Sphal. 10 25-Feb-2010 Hamsa Mineral Granite 14 1 Fall of sides(other than Mine overhang) Source: Directorate of Mines Safety

48 An Overview

Mining accidents can have a variety of causes, including leaks of poisonous gases such as methane or explosive natural gas called firedamp, asphyxiant gases, dust explosions, collapsing of mine stops, flooding or general mechanical errors from improperly used or malfunctioning of mining equipment. 1.25.5 A statistical analysis of major mining accidents (more than four fatalities) in 1901-2010 (Table 1.26.) revealed that about 334 numbers of incidences caused 3672 fatalities.

Table 1.26: Major accidents (more than four fatalities) in mines – cause wise (1901-2010)

Cause Number of Percentage of total Fatalities Percentage of incidences incidence total fatalities Explosion 38 11.37 1267 34.50 Inrush of water 35 10.47 836 22.76 Roof/side fall 218 65.26 1224 33.33 Mine fire 6 1.79 109 2.96 Suffocation of gas 6 1.79 40 1.08 Winding in shafts 17 5.08 100 2.72 Explosives 14 4.19 96 2.61 Total 334 3672

Source: Directorate of Mines Safety 1.26 Epidemics in India24 1.26.1 Infectious diseases are a major public health problem in India. While many infectious diseases like tuberculosis and malaria are endemic, some of them occasionally attain epidemic proportion. An epidemic refers to an increase, often sudden, in number of cases of a disease in a community clearly in excess of what is normally expected in that population. Epidemics are public health emergencies which disrupt routine health services and are major drain on resources. Epidemics include viral infections disease (mengitis, measles, dengue, polio, typhoid fever etc.) and Bacterial infectious diseases (cholera, diarrheoa etc.) The main causes for epidemic are non availability of clean and hygienic drinking water contamination of drinking water sources, lack of awareness about sanitation, unhygienic food, overcrowding, biological conditions in addition to ecological factors. Besides direct costs in epidemic control measures and treatment of patients, the indirect costs due to negative impact on domestic and international tourism and trade can be significant. For example, plague which was not reported from any part of India for almost a quarter of century, caused a major outbreak in Beed district in Maharashtra and Surat in Gujarat in 1994 and resulted in an estimated loss of almost US$ 1.7 billion. 1.26.2 Several factors related to microbes, environment and host susceptibility contribute to the occurrence of epidemics. Because of prevalence of these factors, developing countries including India are frequently affected by epidemics/ outbreaks which result in high morbidity and mortality and affect the public health and economy adversely. Outbreaks reported by States under the Integrated Disease Surveillance Project (IDSP) during the period 2008-2010 are shown in Table 1.27.

49 Disaster Management in India

Table 1.27: Disease-wise outbreaks/epidemics reported by states under IDSP, 2008-10 Sl. No. Disease/Illness No. of outbreaks Total 2008 2009 2010 1 Acute Diarrhoeal Disease 228 332 411 971 2 Food Poisoning 50 121 188 359 3 Measles 40 44 94 178 4 Malaria 43 34 37 114 5 Chikungunya 25 61 25 111 6 Viral Fever 31 37 40 108 7 Chicken Pox 12 45 47 104 8 Dengue 42 20 40 102 9 Cholera 20 34 34 88 10 Viral Hepatitis 28 30 24 82 11 Enteric Fever 6 10 10 26 12 Acute Encephalitis Syndrome 6 5 11 22 13 Leptospirosis 6 3 6 15 14 Anthrax 2 6 3 11 15 Acute Respiratory Illness 4 3 3 10 16 Meningitis 2 3 1 6 17 Mumps 0 2 3 5 18 Scrub Typhus 3 1 1 5 19 Dysentery 0 1 3 4 20 Kalazar 1 0 3 4 21 PUO 2 2 1 5 22 Diphtheria 1 1 1 3 23 Rubella 0 1 2 3 24 Others 1 3 2 6 Total 553 799 990 2342

Source: National Centre for Disease Control (NCDC) 1.26.3 As shown in the Table 1.27, most of the outbreaks/epidemics reported in India are due to water-borne diseases, vector-borne diseases and vaccine preventable diseases. While National Vector Borne Diseases Control Programme (NVBDCP) is the key programme for prevention/ control of outbreak of epidemics of malaria, dengue, chikungunya etc, vaccines administered under UIP/EPI reduce the morbidity and mortality due to diseases like measles, diphtheria, pertussis, poliomyelitis etc. Availability of safe water and adoption of personal and domestic hygienic practices are important measures to prevent/control epidemics of water-borne diseases like cholera, viral hepatitis etc. 1.27 Deaths due to Unnatural Cause25 1.27.1 A comparative list prepared by National Crime Record Bureau, MHA for year 2008 and 2009 in respect of death due to unnatural cause have been given in Table 1.28, which would show the enormity of problems leading to such deaths which attracts little attention due to their sporadic nature and such calamity happening in a diffused manner and not in one event generally.

50 An Overview

Table 1.28: Incidence, Share & Rate of Accidental Deaths by Causes Attributable to Nature and Un- Natural Causes during 2008 & 2009 Sl. Cause 2008 2009 % variation No. of No. % share Rate No. % share Rate incidences (w.r.t. All (w.r.t. All in 2009 over India) India) 2009 (1) (2) (3) (4) (5) (6) (7) (8) (9) A. Causes Attributable To Nature: 1 Avalanche 47 0 0 22 0 0 -53.2 2 Cold and Exposure 836 0.2 0.1 742 0.2 0.1 -11.2 3 Cyclone/Tornado 99 0 0 128 0 0 29.3 4 Starvation/Thirst 227 0.1 0 175 0 0 -22.9 5 Earthquake 6 0 0 2 0 0 -66.7 6 Epidemic 73 0 0 75 0 0 2.7 7 Flood 861 0.3 0.1 726 0.2 0.1 -15.7 8 Heat Stroke 616 0.2 0.1 1071 0.3 0.1 73.9 9 Landslide 340 0.1 0 394 0.1 0 15.9 10 Lightning 2553 0.7 0.2 2113 0.6 0.2 -17.2 11 Torrential Rains 148 0 0 132 0 0 -10.8 12 Other causes attributable 18187 5.3 1.6 16675 4.7 1.4 -8.3 to nature Total (A) 23993 7 2.1 22255 6.2 1.9 -7.2 B. Un-Natural Causes 1 Air-Crash 19 0 0 12 0 0 -36.8 2 Collapse of Structure: 2833 0.8 0.2 2847 0.8 0.2 0.5 (i) House 1173 0.3 0.1 1091 0.3 0.1 -7 (ii) Building 249 0.1 0 265 0.1 0 6.4 (iii)Dam 66 0 0 30 0 0 -54.5 (iv) Bridge 93 0 0 44 0 0 -52.7 (v) Others 1252 0.4 0.1 1417 0.4 0.1 13.2 3 Drowning: 27206 7.9 2.4 25911 7.3 2.2 -4.8 (i) Boat Capsize 979 0.3 0.1 984 0.3 0.1 0.5 (ii) Other Cases 26227 7.7 2.3 24927 7 2.1 -5 4 Electrocution: 8067 2.4 0.7 8539 2.4 0.7 5.9 5 Explosion: 792 0.2 0.1 668 0.2 0.1 -15.7 (i) Bomb explosion 490 0.1 0 261 0.1 0 -46.7 (ii) Other explosion 302 0.1 0 407 0.1 0 34.8 (Boilers etc.) 6 Falls: 10637 3.1 0.9 10622 3 0.9 -0.1 (i) Fall from Height 8757 2.6 0.8 8796 2.5 0.8 0.4 (ii) Fall into Pit/Manhole 1880 0.5 0.2 1826 0.5 0.2 -2.9 etc. 7 Factory/Machine 858 0.3 0.1 1044 0.3 0.1 21.7 Accidents 8 Fire: 22454 6.6 1.9 23268 6.5 2 3.6 (i) Fireworks/Crackers 342 0.1 0 547 0.2 0 59.9 (ii) Short-Circuit 1098 0.3 0.1 1328 0.4 0.1 20.9 (iii) Gas Cylinder/Stove 3628 1.1 0.3 4127 1.2 0.4 13.8 Burst

51 Disaster Management in India

Sl. Cause 2008 2009 % variation No. of No. % share Rate No. % share Rate incidences (w.r.t. All (w.r.t. All in 2009 over India) India) 2009 (1) (2) (3) (4) (5) (6) (7) (8) (9) (iv) Other Fire Accidents 17386 5.1 1.5 17266 4.8 1.5 -0.7 9 Fire-Arms 1639 0.5 0.1 1504 0.4 0.1 -8.2 10 Sudden Deaths: 22738 6.6 2 24836 7 2.1 9.2 (i) Heart Attacks 14397 4.2 1.2 16007 4.5 1.4 11.2 (ii) Epileptic Fits/ 3182 0.9 0.3 3535 1 0.3 11.1 Giddiness (iii) Abortions/Child Birth 851 0.2 0.1 811 0.2 0.1 -4.7 (iv) Influence of Alcohol 4308 1.3 0.4 4483 1.3 0.4 4.1 11 Killed by animals 827 0.2 0.1 962 0.3 0.1 16.3 12 Mines or quarry disaster 371 0.1 0 423 0.1 0 14 13 Poisoning: 24261 7.1 2.1 26634 7.5 2.3 9.8 (i) Food Poisoning/ 7829 2.3 0.7 8154 2.3 0.7 4.2 Accidental Intake of Insecticide (ii) Spurious/poisonous 1358 0.4 0.1 1450 0.4 0.1 6.8 liquor (iii) Leakage of poisonous 247 0.1 0 247 0.1 0 0 gases Etc. (iv) Snake Bite/Animal 7825 2.3 0.7 8035 2.3 0.7 2.7 Bite (v) Other 7002 2 0.6 8748 2.5 0.7 24.9 14 Stampede 434 0.1 0 110 0 0 -74.7 15 Suffocation 1496 0.4 0.1 1257 0.4 0.1 -16 16 Traffic Accidents: 144587 42.2 12.5 152689 42.8 13.1 5.6 (i) Road Accidents 118239 34.5 10.3 126896 35.5 10.9 7.3 (ii) Rail-Road Accidents 2222 0.6 0.2 1516 0.4 0.1 -31.8 (iii) Other Railway 24126 7 2.1 24277 6.8 2.1 0.6 Accidents 17 Other Causes 35135 10.3 3 35906 10.1 3.1 2.2 18 Causes Not Known 13962 4.1 1.2 17534 4.9 1.5 25.6 Total (B) 318316 93 27.6 334766 93.8 28.6 5.2 Grand Total (A+B) 342309 100 29.7 357021 100 30.5 4.3 Source: NCRB 1.27.2 Analysis of deaths due to Accidents: Accidents - human-made and natural - are among the two most important reasons of pre-mature end to human lives. Injuries resulting from the accidents handicap many people. These unfortunate victims are important members of their families as well as of the society. This way, the loss due to accidents and suicides is felt by family members and society at large. The deep and wide impact of accidents and suicides make it incumbent upon society to make efforts at reducing the incidence of these phenomena. Appropriate intervention measures can be devised only after studying various facets of these phenomena. Detailed data is a sine qua non for any study. While individual disaster and event data maintained by the states and reported to the GOI may not accurately tally with the

52 An Overview

Figure 1.21: Unnatural deaths in 2009- Causes, Number and as a percentage of the Total deaths (357,021)

Source: National Crime Record Bureau (NCRB)

NCRB report as some are maintained calendar year wise and some financial year wise yet the NCRB collected data is a useful data for analysis. This data on accidental deaths due to causes attributable to nature - such as cyclone / tornado, earthquake, flood, landslide and torrential rains, to name a few - as well as those not attributable to nature - for example, explosion, fire, sudden deaths, stampede, traffic accidents and others are revealing. These may be seen from the Figure 1.21. Accidental deaths due to natural causes were 6.2 % and those due to unnatural causes were 93.8% and traffic accidents account for the maximum deaths. These trends are a cause of concern for every class of the society, especially to policy makers principally for two reasons. Firstly, the Government is committed for improving the living conditions of its citizens and Secondly, the loss of these lives results in irreparable damage to the society. 1.28 Conclusion A series of catastrophes across the world in recent times have served as a reminder and backdrop of the chapters following the overview which is an attempt to capture valuable and available information across sectors and departments with focus on disaster management. It is hoped that the information will serve as a tool to improve the roles and capacities of all the stakeholders while facing the hazards, risks and the resultant disasters.

53 Disaster Management in India

Institutional Framework

54 2.1 Evolution of Disaster Management in India Disaster management in India has evolved from an activity-based reactive setup to a proactive institutionalized structure; from single faculty domain to a multi-stakeholder setup; and from a relief-based approach to a ‘multi-dimensional pro-active holistic approach for reducing risk’. The beginnings of an institutional structure for disaster management can be traced to the British period following the series of disasters such as famines of 1900, 1905, 1907 & 1943, and the Bihar-Nepal earthquake of 1937. Over the past century, the disaster management in India has undergone substantive changes in its composition, nature and policy. 2.2 Disaster Management during British Administration and Post Independence During the British administration, relief departments were set up for emergencies during disasters. Such an activity-based setup with a reactive approach was functional only in the post- disaster scenarios. The policy was relief-oriented and activities included designing the relief codes and initialising food for work programmes. Post-Independence, the task for managing disasters continued to rest with the Relief Commissioners in each state, who functioned under the Central Relief Commissioner, with their role limited to delegation of relief material and money in the affected areas. Every five-year plan addressed flood disasters under “Irrigation, Command Area Development and Flood Control”. Until this stage, the disaster management structure was activity-based, functioning under the Relief Departments. 2.3 Emergence of Institutional Arrangement in India A permanent and institutionalised setup began in the decade of 1990s with set up of a disaster management cell under the Ministry of Agriculture, following the declaration of the decade of 1990 as the ‘International Decade for Natural Disaster Reduction’ (IDNDR) by the UN General Assembly. Following series of disasters such as Latur Earthquake (1993), Malpa Landslide (1994), Orissa Super Cyclone (1999) and Bhuj Earthquake (2001), a high powered Committee under the Chairmanship of Mr. J.C. Pant, Secretary, Ministry of Agriculture was constituted for drawing up a systematic, comprehensive and holistic approach towards disasters. There was a shift in policy from an approach of relief through financial aid to a holistic one for addressing disaster management. Consequently, the disaster management division was shifted under the Ministry of Home Affairs in 2002 vide Cabinet Secretariat’s Notification No. DOC.CD-108/2002 dated 27/02/2002 and a hierarchical structure for disaster management evolved in India. 2.4 Organisation and Structure of Disaster Management The Disaster Management Division is headed by Joint Secretary (DM) in MHA, who is assisted by three Directors, Under Secretaries, Section Officers, Technical Officer, Senior Economic Investigator consultants and other supporting staff. The upper echelon of the structure consists of Secretary (Border Management), Home Secretary, Minister of State in charge and the Home Minister. 2.5 Disaster Management Framework Shifting from relief and response mode, disaster management in India started to address the issues of early warning systems, forecasting and monitoring setup for various weather related hazards. A structure for flow of information, in the form of warnings, alerts and updates about the oncoming hazard, also emerged within this framework. A multi-stakeholder High powered group was setup by involving representatives from different ministries and departments. Some of these ministries were also designated as the nodal authorities for specific disasters.

55 Disaster Management in India

Following a High Powered Committee Report on Disaster Management for establishment of a separate institutional structure for addressing disasters and enactment of a suitable law for institutionalizing disaster management in the country, a multi-level links between these ministries and the disaster management framework have emerged. Disaster Management framework may be seen in Figure 2.8. 2.6 Present Structure for Disaster Management in India 2.6.1 The institutional structure for disaster management in India is in a state of transition. The new setup, following the implementation of the Act, is evolving; while the previous structure also continues (Figure 2.1). Thus, the two structures co-exist at present. The National Disaster Management Authority has been established at the centre, and the SDMA at state and district authorities at district level are gradually being formalized. In addition to this, the National Crisis Management Committee, part of the earlier setup, also functions at the Centre. The nodal ministries, as identified for different disaster types of function under the overall guidance of the Ministry of Home Affairs (nodal ministry for disaster management). This makes the stakeholders interact at different levels within the disaster management framework. 2.6.2 Within this transitional and evolving setup, two distinct features of the institutional structure for disaster management may be noticed. Firstly, the structure is hierarchical and functions at four levels – centre, state, district and local. In both the setups – one that existed prior to the implementation of the Act, and other that is being formalized post-implementation of the Act, there have existed institutionalized structures at the centre, state, district and local levels. Each preceding level guides the activities and decision making at the next level in hierarchy. Secondly, it is a multi-stakeholder setup, i.e., the structure draws involvement of various relevant ministries, government departments and administrative bodies.

Figure 2.1: National Disaster Management Structure

GOVERNMENT OF INDIA Cabinet Committee on Natural Ministry of Home Affairs Calamities High Level Committee

National Institute for Disaster Management C Ministries and Departments of Government of India O NDMA National Disaster Response Force NEC M Planning Commission National Disaster Mitigation Resource (central) Interministerial Committee M STATES Central Para Military Forces Armed Forces U SDMAs SEC Fire Services Ministries and Departments of States N Civil Defence I District Administration State Police Home Guards DDMAs State Disaster Response Force T NYKS and NSS Local Authorities Y

Academic Institutions Professional Bodies Scientific Organizations COMMUNITY Corporate Sectors Technical Institutions NGOs

56 Institutional Framework

2.7 Disaster Management Act, 2005 2.7.1 This Act provides for the effective management of disaster and for matters connected therewith or incidental thereto. It provides institutional mechanisms for drawing up and monitoring the implementation of the disaster management. The Act also ensures measures by the various wings of the Government for prevention and mitigation of disasters and prompt response to any disaster situation.

2.7.2 The Act provides for setting up of a National Disaster Management Authority (NDMA) under the Chairmanship of the Prime Minister, State Disaster Management Authorities (SDMAs) under the Chairmanship of the Chief Ministers, District Disaster Management Authorities (DDMAs) under the Chairmanship of Collectors/District Magistrates/Deputy Commissioners. The Act further provides for the constitution of different Executive Committee at national and state levels. Under its aegis, the National Institute of Disaster Management (NIDM) for capacity building and National Disaster Response Force (NDRF) for response purpose have been set up. It also mandates the concerned Ministries and Departments to draw up their own plans in accordance with the National Plan. The Act further contains the provisions for financial mechanisms such as creation of funds for response, National Disaster Mitigation Fund and similar funds at the state and district levels for the purpose of disaster management. The Act also provides specific roles to local bodies in disaster management.

2.7.3 Further the enactment of 73rd and 74th Amendments to the constitution and emergence of local self- government, both rural and urban, as important tiers of governance, the role of local authorities becomes very important. The DM Act, 2005 also envisages specific roles to be played by the local bodies in disaster management.

2.7.4 Legal - Institutional Framework: A legal institutional framework developed based on the provision of the Act across the country, in vertical and horizontal hierarchical and in the federal setup of country may be seen in the Figure 2.2 for appreciation of response mechanism which has been put in place.

National Level Institutions 2.8. National Disaster Management Authority (NDMA) The National Disaster Management Authority (NDMA) was initially constituted on May 30, 2005 under the Chairmanship of Prime Minister vide an executive order. Following enactment of the Disaster Management Act, 2005, the NDMA was formally constituted in accordance with Section-3(1) of the Act on 27th September, 2006 with Prime Minister as its Chairperson and nine other members, and one such member to be designated as Vice-Chairperson.

2.8.1 Mandate of NDMA: The NDMA has been mandated with laying down policies on disaster management and guidelines which would be followed by different Ministries, Departments of the Government of India and State Government in taking measures for disaster risk reduction. It has also to laid down guidelines to be followed by the State Authorities in drawing up the State Plans and to take such measures for the management of disasters, Details of these responsibilities are given as under :-

(a) Lay down policies on disaster management;

57 Disaster Management in India

Figure 2.2: Legal Institutional Framework

LEGAL-INSTITUTIONAL FRAMEWORK Disaster Management Act 2005

Central National Government MHA Executive (DM ceII) Committee Nodal Ministry NDMA Chair:HS

State Government NIDM NDRF State Executive SDMA Committee Chair:CS District Administration DMD

Panchayat Municipalities DDMA

(b) Approve the National Plan; (c) Approve plans prepared by the Ministries or Departments of the Government of India in accordance with the National Plan; (d) Lay down guidelines to be followed by the State Authorities in drawing up the State Plan; (e) Lay down guidelines to be followed by the different Ministries or Departments of the Government of India for the purpose of integrating the measures for prevention of disaster or the mitigation of its effects in their development plans and projects; (f) Coordinate the enforcement and implementation of the policy and plan for disaster management; (g) Recommend provision of funds for the purpose of mitigation; (h) Provide such support to other countries affected by major disasters as may be determined by the Central Government; (i) Take such other measures for the prevention of disaster, or the mitigation, or preparedness and capacity building for dealing with the threatening disaster situation or disaster as it may consider necessary; (j) Lay down broad policies and guidelines for the functioning of the National Institute of Disaster Management. 2.8.2 Composition of NDMA: Besides the nine members nominated by the Prime Minister, Chairperson of the Authority, the Organisational structure consists of a Secretary and five Joint Secretaries including one Financial Advisor. There are 10 posts of Joint Advisors and Directors,

58 Institutional Framework

14 Assistant Advisors, Under Secretaries and Assistant Financial Advisor and Duty Officer along with supporting staff. Further, Recruitment Rules have been notified as (a) National Disaster Management Authority, Group-‘C’ posts Recruitment Rules, 2009. (b) National Disaster Management Authority (Group ‘A’) Recruitment Rules, 2009. Under Section 7 (1) of DM Act an Advisory Committee with 12 Members has been constituted during 2007. 2.9 National Executive Committee (NEC) 2.9.1 A National Executive Committee is constituted under Section 8 of DM Act, 2005 to assist the National Authority in the performance of its functions. NEC consists of Home Secretary as its Chairperson, ex-officio, with other Secretaries to the Government of India in the Ministries or Departments having administrative control of the agriculture, atomic energy, defence, drinking water supply, environment and forest, finance (expenditure), health, power, rural development science and technology, space, telecommunication, urban development, water resources. The Chief of Integrated Defence Staff of the Chiefs of Staff Committee, ex-officio, is also its Members. 2.9.2 NEC may as and when it considers necessary constitute one or more sub-committees for the efficient discharge of its functions. For the conduct of NEC, Disaster Management National Executive Committee (Procedure and Allowances) Rules, 2006 has been issued which may be visited at www.mha.nic.in. NEC has been given the responsibility to act as the coordinating and monitoring body for disaster management, to prepare a National Plan, monitor the implementation of National Policy etc. vide section 10 of the DM Act. State level Institutions 2.10 State Disaster Management Authority (SDMA) The DM Act, 2005 provides for constitution of SDMAs and DDMAs in all the states and UTs. As per the information received from the states and UTs, except Gujarat and Daman & Diu, all the rest have constituted SDMAs under the DM Act, 2005. Gujarat has constituted its SDMA under its Gujarat State Disaster Management Act, 2003. Daman & Diu have also established SDMAs prior to enactment of DM Act 2005. 2.11 State Executive Committee (SEC) The Act envisages establishment of State Executive Committee under Section 20 of the Act, to be headed by Chief Secretary of the state Government with four other Secretaries of such departments as the state Government may think fit. It has the responsibility for coordinating and monitoring the implementation of the National Policy, the National Plan and the State Plan as provided under section 22 of the Act. District level Institutions 2.12 District Disaster Management Authority (DDMA) 2.12.1 Section 25 of the DM Act provides for constitution of DDMA for every district of a state. The District Magistrate/ District Collector/Deputy Commissioner heads the Authority as Chairperson besides an elected representative of the local authority as Co-Chairperson except in the tribal areas where the Chief Executive Member of the District Council of Autonomous District is

59 Disaster Management in India designated as Co-Chairperson. Further in district, where Zila Parishad exist, its Chairperson shall be the Co-Chairperson of DDMA. Other members of this authority include the CEO of the District Authority, Superintendant of Police, Chief Medical Officer of the District and other two district level officers are designated by the state Government. 2.12.2 The District Authority is responsible for planning, coordination and implementation of disaster management and to take such measures for disaster management as provided in the guidelines. The District Authority also has the power to examine the construction in any area in the district to enforce the safety standards and also to arrange for relief measures and respond to the disaster at the district level. 2.13. Institutional Framework for Metropolitan Cities In the larger cities (say, with population exceeding 2.5 million), the recommendation of the second Administrative Reforms Commission has suggested that the Mayor, assisted by the Commissioner of the Municipal Corporation and the Police Commissioner to be directly responsible for Crisis Management. It has now been accepted by the Government. 2.14 Hierarchical Structure of Authority and Committee In this structure, National Disaster Management Authority is the authority for formulation of policy and guidelines for all disaster management work in the country. The state authorities further lay down the guidelines for departments of the state and the districts falling in their respective jurisdictions. Similarly, district authorities direct the civil administration, departments and local authorities such as the municipalities, police department and civil administration. The State Executive Committees are responsible for execution of the tasks envisaged by the authorities. The structure thus discussed is summarised in the Figure 2.3.

Figure 2.3: Disaster Management Structure in India Ministry of Home Affairs (MHA)

National Disaster Management Authority (NDMA), Chair- Prime Minister with other 9 members

National National Executive Committee Advisory Committee National Institute Comprising of representatives from the ministries and Disaster of Disaster departments controlling agriculture, atomic energy, Response Manage- defence, drinking water supply, environment & forests, Force finance, expenditure, health, power, rural development, ment S&T, space, telecommunication, water resources etc.

State Disaster Management Authority (9-member body chaired by the CM of the state)

State Executive Committee Advisory Committee

District Disaster Management Authority (7-member body chaired by the District Magistrate and comprising of representatives from the civil administration

Local Authorities Advisory Committees

60 Institutional Framework

2.15 National Institute of Disaster Management (NIDM) 2.15.1 Background: In the backdrop of the International decade for Natural Disaster Reduction (IDNDR), a National Centre for Disaster Management was established at the Indian Institute for Public Administration (IIPA) in 1995. The Centre was upgraded and designated as the National Institute of Disaster management (NIDM) on 16th October 2003. It has now achieved the status of a statutory organisation under the Disaster Management Act, 2005. Section 42 of Chapter VII of the Disaster Management Act, 2005 entrusts the institute with numerous responsibilities, namely to develop training modules, undertake research and documentation in disaster management, organise training programmes, undertake and organise study courses, conferences, lectures and seminars to promote and institutionalize disaster management, undertake and provide for publication of journals, research papers and books.

2.15.2 Management Structure: The Union Home Minister is the President of the Institute, It was constituted on 23rd February, 2007 and has a general body of forty two members comprising of secretaries of various ministries,departments of the Union Government and heads of national level scientific, research and technical organizations.

In terms of Section 42(4) of the Disaster Management Act, 2005 vide order dated 3rd May, 2007, the Government also constituted a 14 member Governing Body which may be seen in Figure 2.4 of the Institute.

Figure 2.4: Governing Body of National Institute of Disaster Management In terms of Section 42(4) of the Disaster Management Act, 2005 read with Rule 6 of the Disaster Management (National Institute of Disaster Management) Rules, 2006, Governing Body of the NIDM has been constituted vide Order No. 45/1/2007-NDM-IV dated 3rd May, 2007 with following members:-

i. The Vice-Chairperson, National Disaster Management Authority (NDMA) Chairperson ii Union Home Secretary Vice-Chairperson iii Secretary (BM) Member iv Secretary, Ministry of Finance, Department. of Expenditure Member v Secretary/ Additional Secretary, NDMA Member vi Additional Secretary and Financial Advisor, Ministry of Home Affairs Member vii Secretary(Disaster Management), Government of Gujarat Member viii Vice-Chancellor, Guru Gobind Singh Indraprastha University, Delhi Member ix Director, Indian Institute of Technology, Roorkee Member x Director, Indian Institute of Management, Kolkatta Member xi Director, National Eco-physical Research Institute, Hyderabad Member xii Secretary, Department of Space Member xiii Secretary, Department of Science and Technology Member xiv Executive Director, NIDM Member Secretary

61 Disaster Management in India

2.15.3 Organizational Structure – NIDM is headed by an Executive Director along with the faculty and staff. The organizational structure may be seen from the Figure 2.5.

Figure 2.5: Organisational Structure of NIDM

The Institute President: Union Home Minister Vice-President Vice Chairperson NDMA Member Secretary : ED. NIDM

Governing Body Chairman: VC, NDMA Vice Chairman: Union Home Secretary Member Secretary: ED, NIDM

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62 Institutional Framework standard battalions of Central Para Military Forces i.e. two battalions each from Border Security Force (BSF), Indo-Tibetan Border Police (ITBP), Central Industrial Security Force (CISF) and Central Reserve Police Force (CRPF) to build them up as a specialist force to respond to disaster or disaster like situations. 2.16.2 The eight battalions (1 battalion comprised of nearly 1000 person) of NDRF consist of 144 specialised teams trained in various types of natural, man made and non-natural disasters. 72 of such teams are designed to cater to the Chemical, Biological, Radiological and Nuclear (CBRN) calamities besides natural calamities. Each NDRF battalion consists of 1149 personnel organised in 18 teams comprising of 45 personnel, who are being equipped and trained for rendering effective response to any threatening disaster situation or disaster, both natural and man made. All these eight battalions are being trained in natural disasters while four of them are being additionally trained for handling CBRN disasters. The composition of such battalions may be visited at www.ndmindia.nic.in 2.16.3 Based on vulnerability profile of different regions of the country, these specialist battalions have been presently stationed at the following eight places as may be seen from the map in Figure 2.6. Figure 2.6: Location of NDRF Battalions NDRF BNS – LOCATIONS

PATNA BHATINDA BHUBANESHWAR (Mundali) GR. NOIDA

GUWAHATI

KOLKATA VADODARA VIJAYAWADA PUNE (Talegaon)

CHENNAI (Arakkonam) LEGEND

BNs / Two more Battalions Approved CBRN BNs (to be raised by Seema Suraksha Bal (SSB)) New Raisings

63 Disaster Management in India

The disaster specialization, location and the details of the parent force may be seen from the Figure 2.7.

Figure 2.7: Details of the NDRF Battalions Sl. No. Battalion Parent Force Location State For Natural Disaster and CBRN emergencies (Chemical, Biological, Radiological and Nuclear) (i) 4th CISF Arakkonam Chennai (ii) 8th ITBP Greater Noida Uttar Pradesh (iii) 2nd BSF Barasat Kolkatta (iv) 5th CRPF Pune Maharastra Natural Disasters (i) 3rd CISF Mundali Orissa (ii) 7th ITBP Bhatinda Punjab (iii) 1st BSF Guwahati Assam (iv) 6th CRPF Gandhinagar Gujarat

2.16.4 The Government of India has approved the raising of two additional battalions of National Disaster Response Force by upgradation and conversion of one battalion each of Border Security Force and Central Reserve Police Force to be located in the states of Bihar (Bihata, Patna) and Andhra Pradesh (Vijaywada) respectively. The administrative approval for raising the two battalions was issued on 13-10- 2010.

2.16.5 There are different training institutes where such forces are given the basic and specialised training. The details of such training programmes are given in Chapter 7 of Capacity Development.

2.17 State Disaster Response Force (SDRF) The states/UTs have also been advised to set up their own Specialist Response Force for responding to disasters on the lines of National Disaster Response Force vide Ministry of Home Affairs letter dated 26th July 2007 and 8th March, 2011. The Central Government is providing assistance for training of trainers. The state governments have been also advised to utilise 10 percent of their State Disaster Response Fund and Capacity Building Grant for the procurement of search and rescue equipment and for training purposes of the Response Force.

2.18 Civil Defence 2.18.1 Aims and Objectives of Civil Defence Act: The Civil Defence Policy of the GoI until 1962 was confined to making the states and UTs conscious of the need of civil protection measures and to keep in readiness civil protection plans for major cities and towns under the Emergency Relief Organisation (ERO) scheme. The legislation on Civil Defence (CD) known as Civil Defence Act was enacted in 1968 which is in force throughout the country. 2.18.2 The Act defines CD and provides for the powers of Central Government to make rules for CD, spelling out various actions to be taken for CD measures. It further stipulates for constitution of CD corps, appointment of members and officers, functions of members etc. The Act has since been amended in 2010 to cater to the needs of disaster management

64 Institutional Framework so as to utilise the services of Civil Defence volunteers effectively for enhancement of public participation in disaster management related activities in the country.

2.18.3 The CD Organisation is raised only in such areas and zones which are considered vulnerable to enemy attacks. The revision and renewal of categorised CD towns is done at regular intervals, with the level of perceived threat or external aggression or hostile attacks by anti- national elements or terrorists to vital installations.

2.18.4 Compendium of instructions – CD deals very briefly with all different aspects of CD in India and includes references to important policy letters including legal aspects. It was first published in February 1969. Subsequently, its scope was enlarged by including the Master Plan of Civil Defence, Civil Defence Act 1968, training courses conducted at NCDC, Nagpur, training syllabus of states.

2.18.5 Role of Civil Defence: During times of war and emergencies, the CD organisation has the vital role of guarding the hinterland, supporting the armed forces, mobilising the citizens and helping civil administration for saving life and property, minimising damage, maintaining continuity in production centers and raising public morale. The concept of CD over the years has shifted from management of damage against conventional weapons to also include threat perceptions against nuclear weapons, biological and chemical warfare and environmental disasters.

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65 Disaster Management in India

(d) Such persons shall ordinarily serve in a voluntary and honorary capacity and they are required to perform the duties assigned to them by order under the Civil Defence Regulations, 1968 or under any other law for the time being in force, for the protection of persons and property against hostile attack (e) A candidate who has been accepted for appointment to the Corps shall be formally enrolled in such manner as the Controller may, by order, determine and at the time of enrollment shall make an oath or affirmation before such officer as the Controller may, by order, appoint. 2.18.8 Directorate General of Civil Defence (DGCD): DGCD was established in 1962 with its headquarters at New Delhi in the Ministry of Home Affairs to handle all policy and planning matters related to Civil Defence, Home Guards and Fire Services including the functioning of National Civil Defence College, and National Fire Service College, Nagpur. An IPS officer in the rank of Director General of Police heads the organisation. He has dual charge of D.G. National Disaster Response Force and Civil Defence (DG, NDRF & CD). 2.18.9 Civil Defence Setup in the States: The state government for the purpose of coordinating the activities of the Controllers of Civil Defence within the state appoints a Director of Civil Defence and also may constitute, for any area within the state a body of a person to be called the Civil Defence Corps. Out of 225 towns from 35 states notified as CD towns, currently the CD organisations at only 130 towns have been activated. Each town has nucleus of four Permanent Staff along with 400 CD Volunteers for a two lakhpopulation. It is expected that each state will have one CD Training Institute with permanent strength of 36 personnel, five vehicles and other equipments. The District Magistrate is designated as a Controller for CD Towns. The present strength of CD volunteers is 5.72 lakhs, out of which 5.11 lakhs are already trained. The target strength of CD volunteers has been fixed at 13 lakhs based on the population of CD towns as per 2001 census. In accordance with the directions issued by Hon’ble Home Minister, one member high powered committee was constituted on 7th February, 2006 under the chairmanship of one of the member of NDMA to analyse the existing functions of Civil Defence Organisations and suggest changes required to enlarge its role to include Disaster Management. 2.18.10 Civil Defence at district level: The state government may appoint a person, not being in its opinion, below the rank of a District Magistrate to be known as the “Controller”. Under certain conditions, the state government may also appoint a Deputy Controller of Civil Defence in appropriate rank up to that of Deputy Collector, but not inferior to that of a Sub- Divisional Magistrate. 2.19 Fire Services 2.19.1 Fire services are mandate of the Municipal Bodies as estimated in item 7 of Schedule 12 under Article 243W of the constitution. The structure across is not uniform. Presently Fire prevention and Fire Fighting Services are organized by the concerned States and UTs. Ministry of Home Affairs, Govt. of India, renders technical advice to the States and UTs and Central Ministries on Fire Protection, Fire Prevention and Fire Legislation. 2.19.2 The Government of India in 1956, formed a “Standing Fire Advisory Committee” under the Ministry of Home Affairs. The mandate of the committee was to examine the technical problems

66 Institutional Framework relating to Fire Services and to advise the Government of India for speedy development and upgradation of Fire Services all over the country. This committee had representation from each State Fire Services, as well as the representation from Ministry of Home, Defence, Transport, Communication and Bureau of Indian Standards. This Committee was renamed as “Standing Fire Advisory Council” (SFAC) during the year 1980.

2.19.3 Fire Services in Gujarat, Chhatisgarh, Punjab, Maharashtra, Himachal Pradesh, Haryana and Madhya Pradesh excluding Indore are under the respective concerned Municipal Corporations. In other remaining States it is under the Home Department. While some States have enacted their own Fire Act, some others have not. As on today, there is no standardization with regard to the scaling of equipment, the type of equipment, or the training of their manpower. In each state it has grown according to the initiatives taken by the States and the funds provided for the Fire Services.

2.19.4 Presently the only Basic Life Line of Fire & Emergency Services which is fully committed to the common public, is the Municipal in some states and State Fire Services. The Airport Authority, Big Industrial Establishments, CISF and Armed Forces, however also have their own Fire Services and many a times in case of need rush in aid to the local Fire Services. Apart from the lack of being a proper government department with a complete developmental plan, State Fire Services have their own organizational structure, administrative setup, funding mechanism, training facilities and equipments.

2.20 National Civil Defence College (NCDC), Nagpur The first Disaster Management Training Institution of the country was founded on 29th April 1957 at Nagpur as the Central Emergency Relief Training Institute (CERTI) to support the Emergency Relief Organisation of the Government of India. This Institute organised advanced and specialist training for revenue officials responsible for Disaster Relief Operations against any natural or manmade disaster. CERTI was renamed as National Civil Defence College on 1st April 1968. NCDC is mandated for conducting training courses for various groups of stakeholders. Details of training on capacity development are given in Chapter on Capacity Development

2.21 National Fire Service College (NFSC), Nagpur 2.21.1 The National Fire Service College was established in 1956 as a sub- ordinate establishment of Ministry of Home Affairs with the aim of providing training to the Fire Officers of the country in advanced techniques of fire fighting and rescue, and creating uniformity in the Fire Service organisations and their management across the country. NFSC began its activities with only one course; later, considering the needs of the country, industrialisation and growth of Indian industry, had added many more courses to its curriculum to give the fire training a professional outlook. 2.21.2 The college has so far trained 15197 fire officers in the country. Being a residential college, National Fire Service College (NFSC), has its own hostel facilities with well furnished accommodation for about 200 trainees at a time.

2.21.3 The college awards certificates, diplomas, and advanced diplomas on successful completion of courses. These are recognized by the state, central government, the public and

67 Disaster Management in India

private sectors and the business community as well. In addition, the diploma and advanced diploma of NFSC are also recognised by the Union Public Service Commission for appointment in the middle management cadre.

2.22 Home Guard 2.22.1 Role: The role of Home Guards is to serve as an auxiliary to the police in the maintenance of law and order, internal security and help the community in any kind of emergency such as air-raid, fire, cyclone, earthquake, epidemic etc. They are also expected to help the police in maintenance of communal harmony, assist the administration in protecting weaker sections, participate in socio-economic and welfare activities and perform Civil Defence duties. 2.22.2 Types: Home Guards are of two types – rural and urban besides in Border States, Border Wing Home Guards Battalions at national level. Border Wing, Home Guard serve as an auxiliary to the Border Security Force. The total strength of Home Guards is 5, 73,793 against which the raised strength is 5,00,410. The organisation is spread over all states and UTs except in Kerala. Eighteen Border Wing Home Guards (BWHG) Battalions have been raised in the border states viz. Punjab (6 Bns.), Rajasthan (4 Bns.), Gujarat (4Bns.) and one of Bn each. for Assam, Meghalaya, Tripura and West Bengal to serve as an auxiliary to Border Security Force for preventing infiltration on the international border and oastalc areas, guarding of vital Installations and lines of communication in vulnerable areas at the time of external aggression. 2.22.3 Statutory Mechanisms and Service Condition: Home Guards are raised under the Home Guards Act and Rules of the states and UTs. They are recruited from a cross section of the population such as doctors, engineers, lawyers, private sector organisations, college and university students, agricultural and industrial workers, etc. who give their spare time to the organisation for betterment of the community. Home Guards are provided free uniform, duty allowances and awards for gallantry, distinguished and meritorious services. Members of Home Guards with three year service in the organisation are trained to assist police in maintenance of law and order, prevention of crime, anti-decoity measures, border patrolling, prohibition, flood relief, fire-fighting, election duties and social welfare activities. The Ministry of Home Affairs formulates the policy regarding role, target, raising, training, equipping, establishment and other important matters of Home Guards Organisation. 2.23 Interface between the Ministries for disaster Management 2.23.1 The interface between stakeholders and the disaster management framework is permanent, backed by legislative measures, decisions, such as those taken for establishment of the bodies and committees for managing disasters and the government orders to execute these decisions. These decisions or measures direct the composition of the structure by identifying the stakeholders to be involved in the disaster management framework. The role to be performed by each stakeholder is in the evolving stage and needs to be defined within different SOPs. Thus, while the involvement of stakeholders in the interface is mandated and permanent, the nature of interface is guided by the expertise or relevance of the stakeholder to the disaster management framework. 2.23.2 The expertise based interfaces emerge when the stakeholders serve as ‘service providers’ to the disaster management framework. For instance, the institutions under Ministry of Earth

68 Institutional Framework

Sciences and Ministry of Water Resources, that is, Indian Meteorological Department (IMD) and Central Water Commission (CWC) respectively, provide information on the weather and climatic parameters and the potential hazards and threats to the nodal management authority. Further, these organizations are involved with disaster planning activities – flood zonation and flood plain management in case of CWC, and hazard mapping and database generation in case of IMD. The organizations and institutions under the Department of Space provide research and technical support by monitoring the weather elements and facilitating satellite based communication, and also undertaking activities such as land use mapping and hazard zoning. 2.23.3 The framework which emerges from above discussion may be summarised in a flow chart form as given in Figure 2.8. Figure 2.8: Interface among the stakeholders, leading to the development of society Framework – at A Glance R P E O Polical Economy S L O Development Environment & CC I U C R Y Disaster Risk Assessment ,Reducon and Management C E S U Migaon &Adaptaon Economic Sustainability S P U P P Structural measures O Non-structural measures Post funding P mainstreaming Financial migaon R Act CRF & NCCF O Infrastructure Policy T Pre-funding funding R Shelter Capacity Building Retrofing Risk Transfer Migaon fund T N Knowledge Management Recovery & Insurance Development N I & Sustainable Development I

Source: NIDM

2.23.3 The Disaster Risk Reduction (DRR) should be seen as on integral part of environment (climate change also) and development. The impending risk analysis should be done in the light of disasters and possible threat of high intensity disasters due to climate change. Accordingly, mitigation and adaptation programmes should be developed. The mitigation plan should address the issues of structural and non-structural interventions along with the fiscal and monetary tools (for DRR & adaptation) for pre and post disaster planning. If this is main streamed, sustainable development can be attained and miseries of the people could be minimised. The top down and bottom up institutional linkages for policy formulation and programme execution would be interdependent with each other.

69 Policy and 3Guidelines 3.1 Introduction 3.1.1 The National Authority, under the Disaster Management Act, has been mandated with the responsibility for laying down the policies, plans and guidelines for disaster management to ensure timely and effective response to disasters. It is further required to approve the plans prepared by the ministries or departments of the Government of India in accordance with the national plans. The guidelines laid down by the National Authority have to be followed by State Authorities in drawing up their State Plans and the same is applicable to different ministries and departments of the Government of India for the purpose of integrating the measures for prevention of disaster or the mitigation of its effects in their development plans and projects. The National Institute of Disaster Management (NIDM) has to follow the broad policies and guidelines set by the NDMA.

3.1.2 The National Executive Committee, under the Act has to prepare the National Plan, coordinate and monitor the implementation of the National Policy. 3.1.3 Similarly, the State Authority of each state has been given the responsibility for laying down policies and plans for disaster management for their state, under the Act.

3.2 National Policy on Disaster Management (NPDM) 3.2.1 The National Policy on Disaster Management (NPDM) has been approved by the central government on October 22, 2009 and circulated to all concerned. The policy envisages a safe and disaster resilient India by developing a holistic, proactive, multi-disaster oriented and technology driven strategy through a culture of prevention, mitigation, preparedness and response. The policy covers all aspects of disaster management including institutional and legal arrangements, financial arrangements, disaster prevention, mitigation and preparedness, techno-legal regime, response, relief and rehabilitation, reconstruction and recovery, capacity development, knowledge management, research and development. It focuses on the areas where action is needed and the institutional mechanism through which such action can be channelised. 3.2.2 The NPDM addresses the concerns of all the sections of the society including differently abled persons, women, children and other disadvantaged groups in terms of granting relief and formulating measures for rehabilitation of the persons affected by disasters. The issue of equity and inclusiveness has been accorded due consideration. It aims to bring in transparency and accountability in all aspects of disaster management through involvement of community, community based organisations, Panchayati Raj Institutions (PRIs), local bodies and civil society.

3.3 National Plan on Disaster Management 3.3.1 An institutional mechanism for preparation of the National Plan has been put in place, which is under preparation in three parts namely:- (i) National Response Plan, (ii) National Mitigation Plan and (iii) National Capacity Building Plan. 3.3.2 A Facilitation Committee under the Chairmanship of Secretary (Border Management) in the Ministry of Home Affairs and three sub-committees namely: (i) National Response Plan Committee (ii) National Mitigation Plan Committee and (iii) National Capacity Building

71 Disaster Management in India

Plan Committee have been constituted for preparation of the National Plan on Disaster Management.

3.3.3 The National Mitigation Plans are under preparation by the concerned nodal ministries for disasters in respect of which the Nodal Ministries have been identified and designated (Table 3.1). The Nodal Officers of the ministries concerned with the disasters are the conveners of the National Mitigation Plan Committees and are required to complete the Mitigation Plan in consultation with the members concerned with the respective disasters in NDMA.

Table 3.1: Convenor - Nodal Ministry/Department for Management/Mitigation of Different Disasters S. Disaster Disaster Mitigation efforts No. Management Nodal Ministry Member Ministries on Mitigation Plan by Committee (MPC) 1. Earthquake MHA Ministry of Earth Ministries of Science and Technology, Sciences Urban Development; Rural Development; HRD; Health & Family Welfare; Panchayati Raj; Youth Affairs & Sports; Women & Child Development; IT & Telecommunication; I & B; and Space 2. Flood MHA Ministry of Water Space; Telecommunication Resources 3. Drought, A&C Deptt. of Hailstorm and Agriculture and --- Pest Attack Cooperation, Ministry of Agriculture 4. Landslide MHA Ministry of Mines Road Transport and Highways and Shipping 5. Avalanche MHA Ministry of Road Transport and Highways and Defence Shipping

6. Forest Fire E&F Ministry of Environment and Forests 7. Nuclear Disaster MHA/ AE Deptt. of Atomic Defence; Health and Family Welfare Energy 8. Industrial E&F Ministry of and Chemical Environment and Disasters Forests 9. Biological H&FW Ministry of Health Defence, Environment and Forests, Disaster and Family Agriculture and Co-operation, Animal Welfare Husbandry, Dairying & Fisheries; and Chemicals & Fertilizers 10. Rail Accidents Rly Ministry of --- Railways

72 Policy and Guidelines

S. Disaster Disaster Mitigation efforts No. Management Nodal Ministry Member Ministries on Mitigation Plan by Committee (MPC) 11. Road Accidents RTH&S Ministry of Road --- Transport and Highways and Shipping 12. Aviation CA Ministry of Civil --- Accidents Aviation 13. Cyclone/ MHA India Metrological --- Tornado/ Deptt. under Hurricane Ministry of Earth Sciences 14. Tsunami MHA Ministry of Earth --- Sciences

3.4 Focus and Objectives of Guidelines NDMA is engaged in the formulation of guidelines through a consultative process involving multiple stakeholders, including the government, non-government organisations, academic and scientific institutions, the corporate sector and community. Since its inception, NDMA has so far released various disaster specific and thematic guidelines. These may be visited at the site www.ndma.gov.in. Salient features of the guidelines issued are as follows:-

3.4.1 Management of Landslide and Snow Avalanches: The objectives of these guidelines are to institutionalise the landslide hazard mitigation efforts, to make the society aware of the various aspects of landslide hazard in the country and to prepare the society to take suitable action to reduce both risks and costs associated with this hazard. The guidelines include regulatory and non-regulatory frameworks with defined time schedules for all activities.

3.4.2 Management of Cyclones: The guidelines aim to deal with the tropical cyclones by way of appropriate coping strategies and risk reduction plans along with greater public awareness. The guidelines call for proactive, participatory, fail safe, multi-disciplinary and multi-sector approach at various levels. An approach encompassing Early Warning System on cyclones, structural measures for preparedness and mitigation, covering cyclone shelters, buildings, road links, drains, embankments, communication/power transmission networks, and non-structural mitigation options, such as coastal zone management, coastal flood plain management, natural resources management, awareness generation related to CDM, hazard zoning and mapping, including the use of GIS tools, capacity development, etc; and its implementation strategies are suggested.

3.4.3 Management of Earthquake: The guidelines emphasise that all new structures are built in compliance with earthquake resistant building codes. Town planning, bye-laws, structural safety audits of existing lifeline structures and other critical structures in earthquake prone areas, carrying out selective seismic strengthening and retrofitting ought to be addressed.

3.4.4 Management of Floods: The guidelines aim at measures for preparedness, prevention, mitigation in the pre-flood stage and on prompt and effective response, relief and recovery during

73 Disaster Management in India

– and post flood stages. Importance on non-structural measures besides structural measures is emphasized in the guidelines. Setting of basin-wise organisations for flood management and also for setting up a National Flood Management Institute for training, education and research are suggested in the guideline.

3.4.5 Chemical Disasters (Industrial): These guidelines call for a protective, participatory, well-structured, fail-safe, multi-disciplinary and multi-structural approach at various levels. On the basis of vulnerabilities and consequences of chemical accidents, the guidelines review the existing regulatory framework and practices and thus propose for a regulatory framework, code of practices, capacity development, institutional framework, etc. They further set out an approach for implementation of the guidelines.

3.4.6 Management of Chemical (Terrorism) Disasters: The guidelines focus on outlining the preparedness and efforts made for mitigating the chemical terrorism, the act of violence perpetrated to achieve professed aims, using chemical agents. While reviewing the existing legislations and regulatory framework, the guidelines identify the gaps and propose the measures required to fill the gaps in the legislative and regulatory frameworks. They also deal with the aspects of surveillance measures for strengthening the intelligence in order to prevent intentional use of chemical agents.

3.4.7 Preparation of State Disaster Management Plans: The aim of the state DM plan is to ensure that the components of DM are addressed to facilitate planning, preparedness, operational, coordination and community participation. The guideline suggests outlays for preparation of the plan to include the state profile, vulnerability assessment and risk analysis, prevention measures, mainstreaming DM concerns into developmental plan and programme projects, preparedness measures, response and partnership with the other stakeholders besides providing for financial arrangement.

3.4.8 Psycho-Social Support and Mental Health Services in Disasters: Disasters leave a trail of agony and affect the survivors’ mental health. The guidelines on this subject outlay the entire gamut of psycho-social support and mental health services with a view to build the nation resilient to respond effectively in all types of disasters. The intent of these guidelines is to develop and integrate a holistic, coordinated and pro-active strategy for management of psycho-social support and mental health services after a disaster through a culture of prevention, mitigation and preparedness to generate a prompt and effective response.

3.4.9 Medical Preparedness and Mass Casualty Management: A Mass Casualty Event (MCE) is an incident resulting in a number of victims large enough to disrupt the normal course of emergency and health care services. The guidelines for MCE focus on all aspects of medical preparedness and mass casualty management with emphasis on prevention, mitigation preparedness, relief and medical response etc. They aim to develop a rigorous medical management framework to reduce the number of deaths during MCE.

3.4.10 Management of Nuclear and Radiological Emergencies: The overall objective of the guidelines is to implement the concept of prevention of nuclear and radiological emergencies. . In rare cases of their occurrence due to factors beyond human control, the guidelines suggest the emergency should be managed through certain pre-planned and established structural and non-structural measures to minimise risks to health, life and the environment.

74 Policy and Guidelines

3.4.11 Incident Response System: These guidelines provide directions and guidelines to central ministries and the states for an effective and well coordinated response. They suggest a multi-disciplinary, and systematic approach to guide administrative mechanisms at all levels of the government with scope for participation of private sector, NGOs, PRIs and communities to work together seamlessly in the response activities. The guidelines are applicable to the management of all incidents - natural or human-made. The proposed methodology is expected to be equally useful for handling all kinds of incidents such as terrorism (Counter Insurgency), law and order situations, serial bomb blast, hijacking, air accidents, chemical, biological, radiological and nuclear (CBRN) disasters, mine disaster, port and harbour emergencies, forest fires, oil field fires and oil spills.

3.4.12 Strengthening of Safety and Security for Transportation of POL tankers: The guidelines envisage measures for prevention and for adoption of preparedness practices to a level that there is no chance of error. This calls for firming up the regulations, setting up of mechanisms of strict conformation, as well as fail proof functioning by each role player.

3.4.13 Management of Biological Disaster: The guidelines for management of biological disasters focus on all aspects of Biological Disaster Management (BDM) including Bio-terrorism (BT). It emphasises a preventive approach such as immunisation of first responders and stockpiles of medical countermeasures based upon risk reduction measures by developing a rigorous medical management framework to reduce the number of deaths during biological disasters, both intentional and accidental. These include the development of specialised measures pertaining to the management of biological disasters.

3.4.14 Management of Tsunami :The guidelines present an introductory overview on the tsunami risk and vulnerability in the country and the preparedness as a nation. It provides for structural mitigation measures and lay down strategies for protecting lifeline with the sea front besides laying down the guidance for developing the techno legal regime and giving an account of various tool kits for tsunami risk management.

3.4.15 Role of NGOs in Disaster Management: The guidelines discuss the role of NGOs in disaster preparedness, mitigation and response and spell out the institutional mechanism for improving the effectiveness of disaster management through effective coordination between NGOs and the government at different levels.

3.4.16 Urban Flooding: The guidelines aim to develop plans for the management of urban flooding with a view to guide the ministry and other government bodies for preparation of their disaster management plans on this aspect of disaster, recurrent in urban areas during monsoon. While reviewing the existing international and national practices for the design and maintenance of the urban drainage system, it addresses the issue of urban flood risk, vulnerability analysis and hazard mapping and provides for response action.

3.4.17 Management of Dead in the Aftermath of Disaster: These guidelines are aimed at institutionalising the standard procedure for proper management of dead bodies and animal carcasses in the aftermath of disasters.

3.4.18 Plan to counter threats to Municipal Water Supply and Water Reservoirs : The plan aims to counter any threat to municipal water supply and water reservoir in view of such a

75 Disaster Management in India perception and taking into account the present water supply system and legislative framework. The plan suggests to framing a preparedness plan and also outlining the guidelines for a standard operating plan.

3.4.19 NDMA from time to time has also been organizing workshops on different issues related to disasters and publishing its reports for action by concerned Ministry or agency. Such reports are given as under

(i) Training regime for disaster response: The key to efficiency in disaster response does not lie in good equipment but in effective ongoing training of NDRF personnel. . The report on the training regime is the outcome of detailed needs analysis, followed by extensive research on good practices in disaster response training in vogue within the country and elsewhere in the world. The training regime so devised aims to help the process of capacity building of NDRF for efficient and effective discharge of its onerous responsibility.

(ii) Pandemic Preparedness: The outcome of the workshop held on the subject on 21- 22nd April, 2008 deals with the existing status of preparedness at different levels of the government and attached offices and inter-dependency of the sectors. The report presents the recommendations following two days of deliberations, on the subject.

(iii) Revamping of Civil Defence set up in the country: The changing scenario, reducing changes and occurrence of traditional wars, an steadily and increasing threat from natural and man- made disasters, with large scale devastation of life and property, warrants a greater role on the part of Civil Defence from merely hostile act-centric responsibility to a holistic role in all the facets of disaster management in the country. It recommends revamping the existing structure of civil defence for enhancing its functional responsibilities in realistic and cost effective manner.

3.5 Management of Droughts26 3.5.1 The new manual for drought management is jointly prepared by MOA & NIDM and issued in November 2009. It suggests a system for drought management policy and programmes to be followed by the Government of India and state governments. It focuses on the general and common elements of drought management at the national level, while allowing the states to include their specific schemes and interventions. The manual incorporates drought forecasting, monitoring, response and mitigation as a continuum of activities.

3.5.2 The manual is divided into following sections, namely - understanding drought, its monitoring, declaration of drought, providing relief and measures taken for mitigation of drought. While classifying the droughts of different types and associated vulnerability, the guidelines suggests the measures for management of drought. The guidelines lay emphasis on risk management rather than following the traditional approach of crisis management as a reactive response measure. The vital components of drought management namely, drought intensity assessment, it’s declaration, prioritisation of areas of drought management and implementation of drought management strategy are outlined in the guidelines. The manual may also be visited on NDMA’s website at the link : http://ndma.gov.in/ndma/guidelines/ NDMA_Droughtguidelines.pdf

76 Policy and Guidelines

3.6 National Action Plan on Climate Change 3.6.1 On June 30, 2008, Prime Minister Dr. Manmohan Singh released India’s first National Action Plan on Climate Change (NAPCC), outlining existing and future policies and programs addressing climate mitigation and adaptation. The plan identifies eight core “national missions” running through 2017 and directs ministries to submit detailed implementation plans to the Prime Minister’s Council on Climate Change by December 2008.

3.6.2 Emphasizing the overriding priority of maintaining high economic growth rates to raise living standards, the plan “identifies measures that promote our development objectives while also yielding co-benefits for addressing climate change effectively.” It stipulates that these national measures would be more successful with assistance from developed countries, and pledges that India’s per capita greenhouse gas emissions “will at no point exceed that of developed countries even as we pursue our development objectives.” The plan can be visited on the website of Ministry of Environment and Forest (MOEF)

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$IBOHF 3.7 Rules notified under the Disaster Management Act, 2005 Several rules for administration of the differentprovisions of the Disaster Management Act have been notified by MHA and the briefs are given in Table 3.2.

Table 3.2: Rules notified under DM Act, 2005

S. No. Rules and regulations Notification Scope Date

1. Disaster Management (Term of 27.9.2006 Provide for pay and service conditions Office and Conditions of Service of Vice Chairperson / Member of NDMA, of Members of the National disqualifications, resignation and filling up Authority and payment of vacancies in the National Authority. allowances to Members of Advisory Committee) Rules, 2006

2. Disaster Management 30.10.2006 Provide for composition of the institute (National Institute of Disaster and governing body, filling up of vacancies, Management) Rules, 2006 meetings of the institute and powers and functions of the Executive Director.

77 Disaster Management in India

S. No. Rules and regulations Notification Scope Date

3. National Institute of Disaster 30.10.2006 Provide for composition of the institute and Management Regulations, 2006 the governing body – meetings, transaction / recording of business of the institute; delegation of functions to governing body or Executive Director; term of office, powers and functions, transaction, powers and functions of Executive Director.

4. Disaster Management 27.9.2006 Provide for procedures to be followed by National Executive Committee the National Executive Committee (exercise (Procedures & Allowances) of powers by the Chairperson of NEC during Rules, 2006 emergency, meeting of NEC atleast once in three months, forwarding minutes of every meeting to National Authority, etc), allowances to be paid to a person associated as an expert with a sub-committee of NEC.

5. Disaster Management (Removal 27.9.2006 Provide tenure to the Vice Chairperson and of Difficulties) Order, 2006 members of NDMA.

6. Disaster Management (Annual 30.10.2006 Provide for the contents to be included in the Report of National Authority) annual report and its laying before both the Rules, 2006 Houses of Parliament within nine months of the end of the Financial Year.

7. Disaster Management (Notice 10.8.2007 Provides for notice of alleged offence of Alleged Offence) Rules, 2007 and intention to make a complaint and particulars to be furnished alongwith notice.

8. National Disaster Management 11.1.2008 Recruitment Rules for selecting a Financial Authority (Financial Advisor) Advisor (JS equivalent) on deputation in Recruitment Rules, 2008 NDMA.

9. Disaster Management (National 13.2.2008 Provide for constitution of force; direction Disaster Management Response and control of Force; responsibility, training, Force) Rules, 2008 skill, duties, etc. and conditions of service of NDRF.

10. Disaster Management (National 11.12.2008 Provides for insertion of Sashastra Seema Bal Disaster Response Force) Act, 2007 and omission / insertion in entries Amendment Rules, 2008 (iii) and (iv).

11. National Disaster Management 13.4.2009 Provides for Recruitment Rules for selection Authority, Group ‘C’ posts of group C such as dispatch rider, Hindi Recruitment Rules, 2009 typist, cashier, etc. in NDMA.

12. National Disaster Management 16.9.2009 Provides for Recruitment Rules for selection Authority (Group ‘A’) of Advisor, Joint Advisor and Senior Research Recruitment Rules, 2009 Officer etc. in NDMA.

These rules may be visited at the website http://www.mha.nic.in

78 Policy and Guidelines

3.8 Conclusion The policy and guidelines are only illustrative. The concerned Ministries related to DM activities, either have come out with their own policy, plans and regulatory mechanisms for management of disasters pertaining to their domain or are at different stages of its formulations. It is hoped that by going through the details of the available policy and the guidelines and other information at one place, the other ministries, states and the stakeholders may get necessary inputs and guidance to use them and come up with effective and implementable plans at their level.

79 Prevention and Mitigation 4.1 Introduction The Yokohama message emanating from the International Decade for Natural Disaster Reduction in May 1994 underlined the need for an emphatic shift in the strategy for disaster mitigation. It inter-alia stressed that disaster prevention, mitigation, preparedness and relief were four elements, which contribute to and gain from the implementation of the sustainable development policies. These elements along with environmental protection and sustainable development, are closely inter related. Nations, therefore should incorporate them in their development plans and ensure efficient follow up measures at the community, sub-regional, regional, national and international levels. Disaster prevention, mitigation and preparedness are better than disaster response in achieving the goals and objectives of vulnerability reduction. It would be evident from the table given in 4.1 that if we compare the disasters of similar magnitude in USA and Japan with that of India it is found that the loss of lives in USA and Japan are much less as compared to that of India. The factors influencing reduced loss is attributed to the better preparedness in USA and Japan.

Table 4.1: Comparison among India, Japan & USA on death in Earthquake of similar magnitude Country/ Place Date Intensity of Quake Human Lives Lost USA Southern California 28.6.1991 6.2 M 2 Landers California 28.6.1992 7.3 M 3 Oregon 21.9.1993 6.4 M 2 Northridge, California 17-1-1994 6.9 M 60 Wyoming 3-2-1995 6.7 M 1 Central California 22-12-2003 6.8 M 2 JAPAN Hokkaido 25-9-2003 8.3 M 0 Kobe 16.1.1995 6.9 M 5530 Kamchatka 12-5-2005 7.3 M 0 Fukuoka 20-3-2005 6.5 M 0 Honshu 16-8-2005 7.2 M 0 INDIA Uttarkashii 20.10.1991 6.6 M 2000 Latur 30.9.1993 6.3 M 9475 Jabalpur 22.5.1997 6.0 M 39 Chamoli 29.3.1999 6.8 M 100 Bhuj 26.1.2001 6.9 M 13805 Source: UNDP (BCPR)

4.2 Mainstreaming of Disaster Risk Reduction in Developmental Strategy 4.2.1 Prevention and mitigation contribute to lasting improvement in safety and should be integrated in the disaster management. The Government of India has adopted mitigation and prevention as essential components of their development strategy. Accordingly, the Tenth Five Year Plan document has a detailed chapter on disaster management. The plan emphasises the fact that development cannot be sustainable without mitigation being built into the developmental process.

81 Disaster Management in India

4.2.2 Mainstreaming DRR involves incorporating disaster risk reduction into development policy and practice. It means radically expanding and enhancing disaster risk reduction so that it becomes normal practice, fully institutionalised within an agency’s relief and development agenda. Mainstreaming has three purposes: (a) To make certain that all the development programmes and projects that originate from or are funded by an agency, are designed with evident consideration for potential disaster risks and to resist hazard impact, (b) To make certain that all the development programmes and projects that originate from or are funded by an agency, do not inadvertently increase vulnerability to disaster in all sectors: social, physical, economic and environment, (c) To make certain that all the disaster relief and rehabilitation programmes and projects that originate from or are funded by an agency are designed to contribute to developmental aims and to reduce future disaster risk. 4.2.3 Mainstreaming DRR into the developmental plans is an important mandate of the Disaster Management Act 2005. Integration of disaster risk reduction measures into ongoing flagship programmes of Government of India is being used as an entry point for mainstreaming DRR in development plans. Steps for ensuring the incorporation of DRR into various ongoing programmes\plans are as follows: (a) Identification of key programme/projects of Government of India, (b) Identification of entry points within the programme for integration of DRR (structural, non- structural and other mitigation measures) at various levels viz. national, state and district levels, (c) Close coordination with concerned departments such as State Planning Commission and Finance Department for promoting DRR measures into development plans and policies, (d) Advocacy for allocation of dedicated budget for DRR within the departmental plans, (e) Preparation of guidelines for integration of disaster risk reduction measures into development plans of various departments at the district and sub-district levels. 4.2.4 Mainstreaming of National Plan and its Sub-Plan: Three committees constituted by Government of India are working for preparing the National Response Plan, National Human Resource and Capacity Development Plan and Mitigation Plans by respective ministries who have been designated as nodal agencies for the disaster relating to their activities. The draft National Response Plan and National Human Resource and Capacity Development Plan are ready. Certain rectifications and modifications are underway before it is presented to the National Executive Committee for its approval. 4.2.5 It is expected that National Response Plan will be put in place once it is adopted by Government of India. It will pave the way for institutionalising the response plan at three tiers as envisaged in the Disaster Management Act. 4.2.6 Similarly, the Capacity Development Plan, once approved and adopted will provide a roadmap for undertaking the capacity building for people engaged in different facets of disaster management and enhance the capacity at the individual, organizational as well as at the environmental levels.

82 Prevention and Mitigation

4.2.7 Mitigation Plans have been submitted by the ministries of Defence, Mines (Geological survey of India), Department of Atomic Energy, Department of Agriculture & Cooperation, Railways and Water Resources, which are under examination and finalization. It is expected that once these mitigation plans are approved, the concerned ministry will undertake activities for taking the prevention and mitigation measures to address the hazard and risk involved in the activities of their sector. It would be the endeavor of the government to persuade the other ministries who have yet to bring their Mitigation Plans at the draft stage to take it further for approval and adoption.

4.3 National Disaster Mitigation Fund: 4.3.1 Section 47 of the Disaster Management Act 2005 provides for constitution of National Disaster Mitigation Fund. The provisions of the Act are as under: (a) The Central Government may, by notification in the Official Gazette, constitute a fund to be called the National Disaster Mitigation Fund (NDMF) for projects exclusively for the purpose of mitigation and there shall be credited thereto such amount which the Central Government may, after due appropriation made by parliament by law in this behalf. (b) The National Disaster Mitigation Fund shall be applied by the National Disaster Management Authority. 4.3.2 The modalities of constitution of NDMF have been discussed by MHA with the MoF, Planning Commission and NDMA from time to time. A reference was made to 13th Finance Commission. The 13th Finance Commission has given its report and as per its recommendations: “Mitigation and reconstruction activities should be kept out of the schemes funded through Finance Commission grants and met out of overall development plan funds of the centre and the states.” The issue is under consideration of Ministry of Home Affairs with other concerned Ministries. 4.4. Measures taken for Prevention and Mitigation of Hazards Risk of destruction and casualties associated with different disasters can substantially be reduced by introduction of prevention and mitigation measures. Mitigation is generally categorised into two main types of activities i.e. structural and non-structural. Structural mitigation refers to any physical construction to reduce or avoid possible impacts of hazards, which include engineering measures and construction of hazard-resistant protective structures and infrastructure. Non- structural mitigation refers to policies, awareness, knowledge development, public commitment, and methods and operating practices, including participatory mechanisms and the provision of information, which can reduce risk with related impacts. The Government of India has adopted several mitigation measures for reducing the risk of being affected by disasters. These measures are being implemented by the concerned ministries. Some of these initiatives are described below. 4.5 Earthquakes 4.5.1 India has been divided into five seismic zones according to the maximum intensity of earthquakes expected. Of these, zone V is most active and comprises whole of Northeast India, the northern portion of Bihar, western Uttar Pradesh hills, Himachal Pradesh and Andaman & Nicobar Islands. 4.5.2 Pace of Urbanisation in India has been increasing. Many of the cities and townships including the national capital of New Delhi, are located in zones of high seismic risk. Typically, the majority of the constructions in these cities are not earthquake resistant. Regulatory mechanisms are

83 Disaster Management in India

weak, thus any earthquake striking in one of these cities would turn into a major disaster. Six major earthquakes have struck different parts of India over a span of last 15 years. The following measures have been initiated for prevention and mitigation of such disasters: 4.5.3 National Earthquake Risk Mitigation Project (NERMP): Understanding the importance of the management of such hazardous situations caused by the earthquake, the Government of India has taken a national initiative for launching a project of ‘National Earthquake Risk Mitigation Project (NERMP). The proposed project aims at strengthening the structural and non- structural earthquake mitigation efforts and reducing the vulnerability in the high risk districts prone to earthquakes. Necessary risk mitigation measures are proposed to be put in place in the highly seismic zones. NDMA, tasked with this project has prepared a Detailed Project Report (DPR) which is under consultation with all the stakeholders. The proposed components of the project include techno-legal regime, institutional strengthening, capacity building and public awareness etc. 4.5.4 National Building Code (NBC): The National Building Code of India (NBC), a comprehensive building code, is a national instrument providing guidelines for regulating the building construction activities across the country. The NBC was first published in 1970 at the instance of Planning Commission and was revised in 1983. Thereafter three major amendments, two in 1987 and the third in 1997 were issued. Considering a series of further developments in the field of building construction, including the lessons learnt in the aftermath of number of natural calamities like devastating earthquakes and super cyclones, a project for comprehensive revision of NBC was taken up under the aegis of National Building Code Committee. The revised NBC has now been brought out as National Building Code of India 2005 (NBC 2005). The salient features of the revised NBC include meeting the challenges posed by natural calamities and reflecting the state-of-the-art and contemporary applicable international practices. The code may be accessed at http://www.bis.org.in/sf/nbc.htm.

Box 4.1: Building collapse in Lalita Park, Laxmi Nagar, Delhi There was an incidence of building collapse in Lalita Park, Laxmi Nagar, East Delhi on 15th November 2010. Several people lost their life and many injured in this incidence. Lt. Governor of National Capital Delhi appointed an inquiry commission by exercising of the power conferred by section 3 of the Commission of Inquiry Act, 1952 (60 of 1952) and read with the Notification No. F.2/4/66-UT dated 20th August, 1966, issued by Govt. of India, Ministry of Home Affairs. Single member, namely, Sh. Lokeshwar Prasad, retired Justice of Delhi High Court has been appointed. The terms of reference of the Commission is as under:- 1. to determine the immediate and proximate causes for the collapse of the building, 2. to determine the circumstances and sequences of events leading to the collapse of the building, 3. to fix responsibility, both individual and institutional, for the collapse of this building and for the building already built that are unsafe structurally in East Delhi, 4. to determine the administrative, procedural and statutory lapses of various departments and agencies to evaluate structural safety aspects of buildings already built or proposed to be built in East Delhi and to recommend remedial measures, 5. to recommend measures that will combat corruption and make concerted public servant accountable for construction of unsafe building. It is expected the commission will come out with recommendations, which may be useful for framing policy and action to contain such mishaps in future.

84 Jammu & Kashmir Earthquake 2005- Retrofitting on walls and windows

4.5.5 Effective implementation of these codes has been a challenge. The Bureau of Indian Standards & National Design and Research Forum with the Institute of Engineers have organised series of brainstorming sessions and workshops to pave the way to inculcate the same into practice. As part of their continuous efforts, a workshop has been scheduled in the month of in May 2011 titled “Implementation of Standards in Infrastructural Development”.

4.5.6 Efforts by Building Materials & Technology Promotion Council (BMTPC): The BMTPC undertook projects for retrofitting of life-line structures for generating awareness among the people as well as various government agencies about the need and techniques of retrofitting. The Council has initiated retrofitting of MCD school buildings in Delhi. It has further initiated a study of 250 bedded hall of Bara Hindu Rao Hospital, New Delhi. It has earlier carried out seismic strengthening and retrofitting of the sub-district hospital in Kupwara in Jammu & Kashmir, 442 structures in Gujarat and primary school buildings at Thano, Block Raipur and Dehradun. The experience on these retrofitted buildings is aimed to help people at large and the policy makers in particular in working towards reducing the vulnerability of lakhs of existing public and private buildings, thereby protecting most number of people in case of future earthquakes.

4.5.7 Earthquake and Seismic Zones: The entire Indian landmass, susceptible to different levels of earthquake hazards, referred to as Zone II to V as per the Seismic Zoning Map of India contained in IS 1893:2002 Fifth Revision.

85 Disaster Management in India

Multi-purpose Cyclone Shelter, Kendrapada, Orissa

The general basis of the zones is as follows: Zone V: Covers the areas liable to seismic intensity 1X and above on MSK (1964) Intensity scale. This is the most severe seismic zone and is referred here as Very High Damage Risk Zone. Zone IV: Gives the area liable to MSK VIII. This zone is second in severity to zone V. This referred here as High Damage Risk Zone. Zone III: The associated intensity is MSK VII. This is termed here as moderate Damage Risk Zone. Zone II: The probable intensity is MKS VII. This zone is referred to as Low Damage Risk Zone. Note: In the revision of the Seismic Zone Map given earlier in the Vulnerability Atlas of India 1997, the seismic zone I has now been merged into Seismic Zone II and renamed as Zone II, Zone III has been extended to cover more areas in Maharashtra, Andhra Pradesh and Tamil Nadu. Zones IV and V have remained unchanged. It may be mentioned here that the new intensity scale, called as MSK Intensity Scale 1964, is much more detailed and quantitative in nature as compared to the Modified Mercalli (MM) though almost similar in intensity. Hence MSK has been used in place of MM in the classification of the seismic zones given above 4.5.8 Initiative by Ministry of Panchayati Raj: It releases funds under Backward Regions Grant Fund (BRGF) for meeting critical infrastructural gaps and other developmental requirements. The ministry has financed several district plans under the BRGF for construction of panchayat buildings, anganwadi centres, school buildings, class rooms, roads, bridges, culverts etc. and restructuring of State Institutes for Rural Development (SIRD) buildings, block resource centres, panchayat training centers etc. The ministry, vide its letter No. N-11012/35/2007- P&J, dated 2nd February 2010 has advised all the states that it is imperative for all such structures to be made disaster resilient in the line with the national vision of disaster management.

86 Prevention and Mitigation

4.6 Cyclones

4.6.1 National Cyclone Risk Mitigation Project (NCRMP) Initiative: Recurrent cyclones account for a large number of deaths, loss of livelihood opportunities, loss of public and private property, and severe damage to infrastructure, thus reversing the developmental gains whenever disasters occur. In order to reduce the loss of life and properties in the events of future calamities, the NCRMP has been launched by MHA in three phases in the cyclone prone coastal states and Union Territories, keeping in view the vulnerability of the states and their readiness with investment proposals.

Box 4.2: National Cyclone Risk Mitigation Project

Aim: The scheme aims to upgrade cyclone forecasting, tracking and warning systems, build capacity in multi-hazard risk management and to construct major infrastructures including multi-purpose cyclone shelters and embankments. Outcome: The project is expected to benefit 5.60 lac people in Orissa and over 5.50 lacs in Andhra Pradesh. Execution Authority: The National Disaster Management Authority (NDMA) has been designated as the implementing agency. The scheme is regularly monitored by NDMA and MHA. Principal Components: The major components under the scheme are as follows; t
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4.6.2 Integrated Coastal Zone Management Project (ICZMP): The Government of India under the aegis of Ministry of Environment and Forest (MoEF) has launched the ICZMP. The objective of the project is to assist GoI in building the national capacity for implementation of a comprehensive coastal management approach in the country and piloting the integrated coastal zone management approach in states of Gujarat, Orissa and West Bengal.

Box 4.3: Integrated Coastal Zone Management Project There are four components of this project:

(i) Capacity Building: It includes mapping, delineation and demarcation of the hazard lines, and delineation of coastal sediment cells all along the mainland coast of India. (ii) Piloting ICZM approaches in Gujarat: This component will support capacity building of the state level agencies and institutions, including preparation of an ICZM plan for the coastal sediment cell that includes the Gulf of Kachchh and pilot investments.

87 Disaster Management in India

(iii) Piloting ICZM approaches in Orissa: It provides for capacity building of the state level agencies and institutions, including preparation of an ICZM plan for the coastal sediment cells that include the stretches of Paradip-Dhamra and Gopalpur-Chilika, including a regional coastal process study, and pilot investments. (iv) Piloting ICZM approaches in West Bengal: The project cost is ` 1425 crores ($285.67 million) and it is slated to be completed by 31 Dec. 2015.

4.7 Floods 4.7.1 National Flood Risk Mitigation Project (NFRMP): NFRMP has been envisaged for mitigation or reduction in risk, severity or consequences of floods. It aims at ensuring that arrangements are in place to mobilise the resources and capability for relief, rehabilitation, reconstruction and recovery from disasters besides creating awareness among vulnerable communities. NDMA has been entrusted to prepare a Detailed Project Report (DPR) on Flood Risk Mitigation Project. 4.7.2 Flood Management Programme: The state governments are engaged in flood management work since the independence of the country. Upto the Tenth Five Year Plan, 45.6 million hectares (m-ha.) of flood prone areas in the country had been provided a reasonable degree of protection. The Eleventh Five Year Plan envisages protecting an additional area of 2.18 million hectares. Management of water resources is primarily the responsibility of the state governments. The schemes for Flood Control and Protection are therefore, to be planned, funded and executed by the state governments. The Government of India, under the aegis of Ministry of Water Resources has launched the “Flood Management Programme (FMP)” at a total cost of ` 8000 crores for the 11th Plan period (2007-12).

Darbhanga Town Protection Wall Source: Annual Report 2009-10, Ministry of Water Resources

88 Raising & strengthening of Embankment on River, Burhi Gandak Source: Annual Report 2009-10, Ministry of Water Resources

Box 4.4: Flood Management Programme Background: The FMP scheme was launched by Ministry of Water Resources under the central plan at a total cost of ` 8000 crores. The sanction of the scheme was been conveyed vide MoWR Order No. 5/7/2006-Ganga (Vol.II) / 4749-77 dated 28.11.2007. Aim: The scheme provides financial assistance to the state governments for undertaking flood management works in critical areas during the 11th Plan period (2007-12). Components: (i) Critical flood control and river management works in the entire country (includes river management, flood control, anti-erosion, drainage development, anti-sea erosion, and flood proofing works besides flood prone area development programme in critical regions and restoration of damaged flood control/ management works). (ii) The spillover works of on-going central plan schemes of Xth Plan would also be supported under this scheme during XI Plan. Executing Authority: The FMP scheme has been implemented by Flood Control, Water Resources / Irrigation Departments of the state governments. Under the programme, a total of 311 flood management work schemes of critical nature are included from 19 States for central assistance up to 31st March, 2010, out of which 117 works for 10 States are reported to be physically complete. It is expected that 1.33 billion hectares of flood prone areas have thus been restored and protected which will provide safety to about 12.89 million people during high floods.

89 Disaster Management in India

4.7.3 For the year 2010-11, another 42 new flood management schemes have been included under the FMP from Assam, Bihar, Goa, Gujarat, J&K, Kerala, Manipur, Orissa, Pondicherry, Tamil Nadu, Uttarakhand, U.P. and West Bengal. 4.8 Study of Land Contour by GSI 4.8.1 Geological Survey of India (GSI) studied the shape and material of the land getting inundated and generates data on area, shape, slope, infiltration and permeability of soil of the basin, drainage pattern, landform and longitudinal and cross profiles of the channels. On the basis of these studies, GSI produces flood hazard maps indicating prohibitive, Restricted, Cautionary and Flood Free Zones. 4.8.2 Significant flood related studies and recommendations made by GSI are as follows t
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90 Detailed Project Report (DPR) on Landslide Mitigation Project and is in the process of appointing consultants to conduct a study and prepare DPR after defining the scope of work in consultation with all the stakeholders.

4.10 Tsunami 4.10.1 The Tsunami of 26th December 2004 caused extensive damage to life and property in the States of Tamil Nadu, Kerala, Andhra Pradesh and UTs of Puducherry and Andaman & Nicobar Islands (A&NI). It hit the fishermen community badly besides their means of livelihood. There had also been extensive damage to the infrastructure including houses, harbors, jetties, roads, bridges, power, telecom, hospitals, schools and other social sector buildings after Tsunami in Samanthanpettai village Nagapattanam.

Box 4.5: Measures by Japan

Japan, where tsunami science and response measures first began following disaster in 1896. The country has built many tsunami walls of up to 4.5 meters (15ft) to protect the populated coastal areas. Other localities have built floodgates and channels to redirect the water from incoming tsunami. However, their effectiveness has been questioned, as tsunami often overtops the barriers. For instance, the Okushiri Hokkaido tsunami which struck Okushiri Island of Hokkaido within two to five minutes of the earthquake on July 12, 1993 created waves as high as 30 meters (100ft) tall - as high as a 10-storey building. The port town on Aonae was completely protected by tsunami wall, but the waves washed right over the wall and destroyed all the wood-framed structures in the area. The wall may have succeeded in slowing down and moderating the height of tsunami, but it did not prevent major destruction and loss of lives.

Source: http://www.asianetindia.com/commentary/tsunami_249905.html 4.10.2 One of the natural measures which could be adopted for mitigating the impact of tsunami is using shoreline tree cover. Tree plantation is a cost-effective long- lasting means of tsunami mitigation in comparison to the artificial barriers. Some locations of Indian Ocean

Damaged Houses, (December 2004) and Reconstruction of houses, Nagapattinam, Tamil Nadu (September 2005)

91 Disaster Management in India

Natural Mitigation- Sand dune- Pogainallur village Natural Mitigation-Mangroves - Tamil Nadu Nagapattanam, Tamil Nadu

where Tsunami struck in 2004 remained almost intact because the existing coconut palms and mangroves trees absorbed the tsunami’s energy. Similarly, the village of Naluvedapathy in Tamil Nadu region faced minimal damage and few deaths because of the forest of 80, 244 trees planted along the shoreline in 2002

4.11 Droughts 4.11.1 The Department of Agriculture & Cooperation, under the Ministry of Agriculture, Government of India released a manual for drought management in November, 2009. The manual suggests for looking beyond the traditional drought management through famine codes for dealing with situations of mass hunger and collective penury. It focuses on plans which take into account all capabilities of the state to address the impact of drought i.e., focus on mitigation measures, tapping newer technologies, enabling the systems adapt to the new legal framework and including improvement and area development programmes in drought mitigation.

4.11.2 The National Institute of Agriculture and Extension (MANAGE), Hyderabad has been identified to launch a National Project for Integrated Drought Monitoring & Management, with MANAGE as the lead partner. A proposal submitted by MANAGES to implement this national project through available budgetary provisions of Department of Agriculture & Cooperation is under consideration. Another proposal to set up a National Institute of Drought Management is also under consideration of Ministry of Agriculture & Cooperation.

4.11.3 The Drought Prone Areas Programme (DPAP) and Desert Development Programme (DDP) are being implemented by the Government of India since 1973-74 and 1977-78 respectively. These programmes aim at drought proofing and minimising desertification of fragile areas in

92 Prevention and Mitigation the arid, semi-arid and dry-sub humid regions often affected by severe drought conditions and desertification.

4.11.4 National Rainfed Area Authority in the Ministry of Agriculture has been set up to address the issue of drought mitigation on a long term basis. It comprises experts who provide knowledge inputs regarding systematic upgradation and management of the country’s dryland and rainfed agriculture.

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4.12 Fire 4.12.1 A Centrally Sponsored Scheme for Strengthening of Fire and Emergency Service in the country was launched in November 2009 at an outlay of ` 200 crores. The overall objective of the scheme is to strengthen fire and emergency services in the country and progressively transform it into Multi-Hazard Response Force capable of acting as first responder in all types of emergency situations. As the scheme is to be implemented with the centre and state contributions for procurement of equipment (in the ratio of 75:25 and for north-eastern states in the ratio of 90:10) within the XIth Five Year Plan period, the state governments are to contribute ` 40.23 crore as their share.

93 Disaster Management in India

4.12.2 The main components and activity wise progress under the scheme are given in Table 4.2 and Table 4.3. Table 4.2: Components of the Scheme for Strengthening of Fire and Emergency Service

S. Components Funds No. (` in crore) (i) Procurement of capital items such as advanced fire tender, high pressure 178.12 pump with mist technology, quick response team vehicle and search and rescue combi-tools. (ii) Awareness generation/ School safety programme 4.38 (iii) Training of trainers in advanced courses of collapsed structure search and 5.00 rescue and fire fighting at the NFSC, Nagpur (iv) Fire hazard and risk analysis 10.00 (v) Project management and monitoring 2.50 Table 4.3: The activity-wise progress of Fire Service Scheme (March 2011)

Activities Details Present Status Purchase of Purchase of advanced fire tender, high More than 89% of total funds have Capital Items pressure pump with mist technology, been earmarked for purchase of quick response team vehicle and search capital items. The state governments and rescue combi-tools by the state are required to undertake the governments. procurement as per prescribed specifications. Fire Hazard and The study will attempt to identify the gaps Consultant is being appointed. Risk Assessment in existing fire services in the country and evolve a futuristic strategy for bridging the gaps and taking steps for mitigating the impacts of a fire hazard. Training of Capacity building of thirty fire officers in Thirty fire service officials have been Trainers advance methods of search and rescue, trained at Fire Service College, UK medical first responders. These trained in advance methods of fire fighting officers will further impart trainings to and urban search and rescue. These 750 other fire officials. officials were initially trained in basic DM aspects at NIDM, New Delhi. Awareness Conducting awareness generation IEC materials were developed and Generation/ programmes with communities and circulated to all the State Fire Services. School Safety schools on fire safety measures. DGCD is to conduct awareness Programme programmes in the states.

4.12.3 Fire Hazard and Risk Analysis of fire services in the Country: The MHA has proposed to undertake a study on fire hazard and risk analysis of fire services in the country. The aim of the study is to identify gaps in existing fire services and evolve strategies for mitigating impacts of fire hazards in the country. The outcome of the study will be used to formulate an action plan (state/UT wise) for augmentation and future development of the fire services along with the plan to source the funding for its implementation. As a part of study, the consultant would be required to organise visits to each of the fire stations and fire service organisations in the country and generate database through primary and secondary surveys. Govt. of India has prepared the list of Multi-Hazard districts. List of Multi-Hazard districts is shown in Table 4.4.

94 Prevention and Mitigation

Table 4.4: List of Multi-Hazard Districts For Creation of Civil Defence Set-up

State District State District Assam Bongaigon Uttar Pradesh Lucknow Assam Dibrugarh Uttar Pradesh Mathura Assam Jorhat Uttar Pradesh Meerut Assam Tinsukia Uttar Pradesh Moradabad Delhi North East Delhi Uttar Pradesh Muzaffarnagar Delhi South Delhi Uttar Pradesh Saharanpur Goa North Goa Uttar Pradesh Varanasi Goa South Goa Andhra Pradesh Hyderabad Gujarat Ahmedabad Andhra Pradesh Vishakapattanam Gujarat Bharuch Assam Darrang Gujarat Dangs Assam Golaghat Gujarat Gandhinagar Assam Kabri Anglong Gujarat Jamnagar Assam Kakrajhar Gujarat Kachch Bihar Begusarai Gujarat Mehasana Bihar Kathihar Gujarat Narmada Bihar Patna Gujarat Navsari Bihar Purnia Gujarat Surat Haryana Ambala Gujarat Vadodra Haryana Faridabad Jammu & Kashmir Anantnag Haryana Gurgaon Jammu & Kashmir Badgam Haryana Hissar Jammu & Kashmir Jammu Haryana Jhajjar Jammu & Kashmir Poonch Himachal Pradesh Shimla Jammu & Kashmir Rajouri Jammu & Kashmir Baramullah Jammu & Kashmir Srinagar Jammu & Kashmir Doda Maharashtra Mumbai Jammu & Kashmir Kargil Maharashtra Ratnagiri Jammu & Kashmir Kupwara Maharashtra Thane Jammu & Kashmir Leh Punjab Amritsar Jammu & Kashmir Pulwama Punjab Bhatinda Jammu & Kashmir Udhampur Punjab Faridkot Jharkhand Godda Punjab Ferozpur Jharkhand Sahibganj Punjab Gurdaspur Maharashtra Raigarh Punjab Hoshiarpur Maharashtra Sindhudurg Punjab Jalandhar Orissa Baleshwar (Balasore) Punjab Ludhiana Orissa Bhadrak Punjab Patiala Orissa Dhenkanal Punjab Ropar Orissa Jagatsinghpur Punjab Sangrur Orissa Kendrapara Rajasthan Alwar Rajasthan Jalore Rajasthan Barmer West Bengal Bardhaman Uttar Pradesh Agra West Bengal Birbhium Uttar Pradesh Allahabad West Bengal Darjeeling Uttar Pradesh Baghpat West Bengal East Mednipur Uttar Pradesh Bareilly West Bengal Howrah Uttar Pradesh Bulandshahar West Bengal Hugli Uttar Pradesh Ghaziabad West Bengal Jalpaiguri Uttar Pradesh Gorakhpur West Bengal Kolkatta Uttar Pradesh Jhansi West Bengal Murshidabad Uttar Pradesh Kanpur (Nagar) West Bengal West Mednipur

95 Disaster Management in India

4.13 Forest Fire Management: 4.13.1 Fire prevention, detection and suppression activities are state subjects. The Central Government has been formulating policy, planning and financing the states from time to time. Forest Protection Division of Ministry of Forests headed by DIG of Forests is responsible for the forest fire management at the central level. The Joint Forest Management Committees, 36,165 in number across the country, have been given the responsibility to protect the forests from fires. The Central Government has issued the National Forest Fire, Prevention and Control guidelines and has also worked on a National Master Plan on Forest Fire Control. 4.13.2 A centrally sponsored scheme ‘Intensification of Forest Management’ initiated since the Tenth Five Year Plan has allocated 15 percent of the funds for forest fire management. 4.14 Oil Industry In the oil industry, the disaster management plan is maintained at the area level and covers a wide aspect (since their activities are likely to affect local people also). Oil companies have FTUBCMJTIFE
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specialist to deal with fires and other identified hazards. In oil companies, it has been observed that international players for rescue and recovery operations are also hired at very short notice at cater to the specific requirements. 4.15 Chemical Disasters The MOEF has taken the following measures towards developing a Regulatory Framework for Chemical Safety: (i) The Environment (Protection) Act was enacted in 1986. Under the Act, two rules have been notified for ensuring chemical safety, namely, (a) The Manufacture, Storage and Import of Hazardous Chemicals Rules, 1989 (MSIHC) amended in 1994 and 2000; (b) The Chemical Accidents (Emergency, Planning, Preparedness, and Response) Rules, 1996 (EPPR) under the Environment (Protection) Act, 1986. (ii) The Public Liability Insurance Act 1991, amended in 1992 and the Public Liability Insurance Rules 1991, amended in 1993 require maximum hazard units to procure an insurance policy and deposit an equal amount in the Environment Relief Fund to provide immediate relief to victims of chemical accidents.

4.16 Prevention of Disasters in Mines The various safeguards and preventive measures against coal mine fires are outlined in the Coal Mines Regulations, 1957 and related circulars, notifications and technical instructions. The Directorate General of Mines Safety (DGMS) examines from each and every application for underground and surface mining from all considerations. Wherever necessary the DGMS imposes additional precautionary and preventive measures. The officers of the DGMS from time to time inspect the mines to assess the implementation of the measures and suggest modifications, etc. For the new projects and reorganisational projects, after the issuance of the EIA Notification, 1994 under the Environment (protection) Act, 1986, it has become compulsory to get

96 Prevention and Mitigation environmental clearance from the Ministry of Environment and Forests (MOEF) and for this the mines are required to develop their Environmental Management Plans (EMPs) in which the problems of the mine fires are adequately addressed as the mine fires have considerable environmental impacts. 4.17 Epidemics 4.17.1 The Ministry of Health & Family Welfare is instrumental and responsible for implementation of various programmes on a national scale in the areas of prevention and control of major communicable diseases and promotion of traditional and indigenous systems of medicines. This ministry also assists states in preventing and controlling the spread of seasonal disease outbreaks and epidemics through technical assistance. It is actively involved in disease diagnosis during epidemics and outbreaks, operational research, manpower development, advisory role and other multifarious activities towards prevention and control of a cascade of epidemic prone disease of larger public health importance in collaboration with National Institute of Communicable Disease (NICD) and external organisations and institutes. (Photo : A health camp at Akkarapettai Villager in Nagapattinam District-December 2004) 4.17.2 Post-disaster management of health, sanitation and hygiene services is crucial to prevent an outbreak of epidemics. The draft Public Health (Prevention, Control and Management of Epidemics, Bio-terrorism and Disasters) Bill prepared by the Ministry of Health & Family Welfare is under consideration for enactment. 4.17.3 National Vector Borne Diseases Control Programme (NVBDCP) is the key programme for prevention/control of outbreaks/epidemics of malaria, dengue, chikungunya etc., vaccines administered to reduce the morbidity and mortality due to diseases like measles, diphtheria, pertussis, poliomyelitis etc. Two key measures to prevent/control epidemics of water-borne diseases like cholera, viral hepatitis etc. include making available safe water and ensuring personal and domestic hygienic practices are adopted. 4.17.4 It is impossible to always prevent epidemics, but its impact can always be mitigated by anticipating them and by being prepared. Epidemic preparedness and response is a multi- sectoral and multi-agency activity. Health sector plays a lead role in preparing and executing the epidemic preparedness plan but need the expertise and support of other disciplines/sectors also. Planning process will inter alia require extensive review of health infrastructure, disease surveillance and response system, availability of laboratories, trained professionals, drugs, vaccines and equipment in the country, communication system, coordinating mechanism between different sectors and between the national and international agencies and legal issues. 4.17.5 Accordingly, Govt. of India launched Integrated Disease Surveillance Project (IDSP) in November 2004 to strengthen capacity at state/district levels to detect and respond to the epidemics in early rising phase. Under the project, the district and states have been strengthened by providing additional technical manpower (epidemiologists, microbiologists, entomologists), training of rapid response teams for outbreak investigation and control, strengthening of laboratories for detection of organisms causing epidemic prone diseases, and establishment of IT network for data compilation, dissemination and analysis. The states are at varying stages of implementation. 4.17.6 The key achievement of IDSP has been creation of capacity at sub-district/district/state levels to detect early warning signals and outbreaks of epidemic prone diseases so that they can

97 Disaster Management in India

Medical camp during Tsunami, 2004 in Nagapattinam, Tamil Nadu be responded early. They collect weekly surveillance data, monitor disease trends and investigate rising in cases. About 85% of districts are reporting these data to Central Surveillance Unit through e-mail and more than 60% report through portal. The result is that states have detected and responded to more number of outbreaks after implementation of IDSP. For example, a total of 553 outbreaks were reported and responded to by states in 2008, 799 outbreaks in 2009 and 990 outbreaks in 2010. Earlier not many outbreaks were reported in the country by the States/ UTs. 4.17.7 Finally, a mention must be made about the International Health Regulations (IHR), 2005 which were adopted by the 58th World Health Assembly in May 2005 and came into force on 15 June 2007 (in India on 8 August 2007). IHR (2005) also provide us an opportunity to strengthen core capacities to detect, assess and notify and control all public health emergencies of international concern (PHEIC). These capacities will also help us to control endemic infectious diseases which may not spread to other countries. 4.18 Measures taken for Rail Safety Several measures have been taken to improve safety of Rail Transportation which is summarised as below:

4.18.1 Special Railway Safety Fund (SRSF): Arising out of an important recommendation of Railway Safety Review Committee (RSRC) (Khanna Committee), to pull up the backlog of arrears for track renewals, bridges, rolling stock and signaling gear within a fixed time frame, a non- lapsable ‘Special Railway Safety Fund’ of ` 17000 crores was set up with effect from 01.10.2001 with a contribution from the Ministry of Finance and Railways. Works related to replacement / renewal of over-aged bridges, signaling gears and replacement of narrow gauge locomotives is ongoing.

98 Prevention and Mitigation

4.18.2 Corporate Safety Plan (2003-2013): Railway Safety Review Committee (1998), in its report recommended that railways formulate a safety plan with the following broad objectives: t
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installations. 4.19. Road 4.19.1 The main thrust of accident prevention and control across the world has been on the four “E”s , namely, (i) Education (ii) Enforcement (iii) Engineering (iv Environment and Emergency care of road accident victims. 4.19.2 The measures taken by Government of India to reduce the risk of road accidents are summarised as follows: i. Road Engineering: These are design/specification related aspects of roads and highways to enhance road safety. The National Highway Authority of India (NHAI) is ensuring usage of road safety furniture and has taken a number of steps to enhance safety of road users. The safety measures are inbuilt in the projects during design, construction, operations and maintenance. ii. Enforcement: The state governments and UTs are to take measures for enforcing the statutory provisions provided under the Motor Vehicles Act, 1988 and the Central Motor Vehicle Rules, 1989. The enforcement measures under the said statute provides for inspection, licensing and verification of fitness of vehicles. iii. Education and Training: These primarily involve spreading road safety awareness and imparting training to drivers. The initiatives undertaken in the field of training are refresher training for heavy vehicle drivers and providing financial assistance to states/UTs for setting up model driving schools to turn out well trained drivers. iv. Faster relief and evacuation of road accident victims: In order to reduce the trauma and probability of death and disability associated with the road accidents, National Highway Accident Relief Service Scheme has been initiated which provides for supply of cranes and ambulances to states/UTs and NGOs for relief, rescue and

100 Prevention and Mitigation

evacuation of accident victims to the closest medical centre and for clearing the accident site. v. Another measure is medical care in which financial assistance upto` 1.50 crores was provided to the state government hospitals located on national highways for upgradation and strengthening of emergency facilities vi. Road Safety Audit: The specific aim of the road safety audit is to minimise the risk and safety of accidents on the national highways and expressways. 4.20 Civil Aviation 4.20.1 The Directorate General Civil Aviation (DGCA) has the regulatory responsibility for aviation safety. Its mandate is to ensure the highest level of safety in the Indian Aviation System by employing International Civil Aviation Organization (ICAO) standards and recommended practices. Mindful of India’s State Safety Programme (SSP), DGCA is to maintain an integrated set of regulations and activities aimed at enhancing aviation safety. 4.20.2 DGCA implements proactive and as far as possible predictive strategies, for encouraging all stakeholders and service providers to understand the benefits of a safety culture, which are based on an inclusive reporting culture. DGCA fosters and assists stakeholders in developing comprehensive Safety Management Systems (SMS) and develops preventive safety strategies for the aviation system in an environment of a “just culture”. DGCA works with service providers in a cooperative and collaborative manner to help them develop and establish their safety management systems. 4.20.3 The responsibility for coordination and search and rescue (SAR) with other agencies is, however vested with the Airports Authority of India (AAI) under the Airports Authority of India Act, 1944, as amended by AAI (Amendment) Rules, 2003. 4.20.4 The SSP is based on comprehensive analysis of the States Aviation System, safety policies, risk management, safety assurances and permission. 4.20.5 An appropriate legislative framework in safety management has been implemented in India in accordance with ICAO Standard and Recommended Practices (SARPs). For carrying out ICAO functions, India has three layers of legislation - the Aircraft Act 1934 which is the primary legislation, the secondary Aircraft Rules, 1937 and the tertiary Aircraft (Carriage of Dangerous Goods) Rules, 2003. 4.20.6 The DGCA has released a series of Safety Management System-Civil Aviation Regulation (SMS-CARs) about operational regulations and implementation policies for the applicable service providers. 4.21 Conclusion Effective planning and focus on prevention and mitigation would greatly help in ensuring that the hazards do not transform itself into disasters and the coping capacities of the vulnerable population is greatly increased. This would again need systematic planning and coordination to ensure that the Disaster Risk Reduction is constantly promoted and mainstreamed in the regular programmes of each department. Recently planning commission has constituted a committee for inclusion of DRR measures in the 12th five year plan.

101 Preparedness and Response

102 5.1 Introduction 5.1.1 Facing disaster by way of mitigation, prevention, preparedness, response, evacuation, relief and rehabilitation has been part of the administrative ethos. India has a long history of rendering relief in an organized fashion in times of drought and famine. The states have antiquated relief code which deals with the general principles of administration of relief. It starts with the responsibility of the Government for combating distress, defining scope of object of such measures etc. India, with a vast agrarian economy in the past had focused on distress relief mainly related to agricultural activities. Preparedness included collection of statistical data on the rainfall, weather conditions, crop pattern activities relating to management of cattle etc. The relief work focused on departmental work and village work for generation of employment during drought. With the changing pattern of disaster and with the introduction of technology, material and new financial terms into disaster management, several modifications have been incorporated in the administrative measures for relief work 5.1.2 The scope of disaster has since changed and so the response thereto. With the constitution of successive Finance Commission under the provision of the Constitution, the measures for relief and the scope of disaster have enlarged. An attempt has been made in the succeeding paragraphs to capture the information relating to timely prediction/forecasting of different kind of disasters and development of Standard Operating Procedures (SOPs) for responding such disasters. 5.2 Institutional Arrangements 5.2.1 Forecasting about climate change is pre requisite for taking preparedness measure to respond to the disaster is the most important element of disaster management. The Ministry of Environment & Forest (MoEF), Ministry of Earth Sciences (MoES), Ministry of Science & Technology (MST), Ministry of Agriculture (MoA), Ministry of Water Resources (MWR), Ministry of Human Resource Development (MHRD), Ministry of Non-conventional Energy (MNES), Defence Research & Development Organization (DRDO), Ministry of Defence (MoD), Ministry of Health and Family Welfare (MoHFW), Indian Space Research Organization (ISRO) and Indian Meteorological Department (IMD) promote and undertake climate and climate change related research in the country. Government of India has designated the offices as given in the Box 5.1 as the nodal agencies for early warning of different natural hazards:

Box 5.1: Disaster wise nodal agencies for Forecast

Disasters Agencies

Cyclone Indian Meteorological Department

Tsunami Indian National Centre for Oceanic Information Services

Floods Central Water Commission

Landslides Geological Survey of India

Avalanches Snow and Avalanche Study Establishment

Heat & Cold Waves Indian Meteorological Department

103 Disaster Management in India

5.3 India Meteorological Department (IMD) 5.3.1 Modernized meteorological observations and research in India was initiated more than 200 year ago, since 1793, when the first Indian Meteorological observatory was set up at Madras (now Chennai). IMD was formally established in 1875 with a network of about 90 weather observatories for systematic observation and research. 5.3.2 India Meteorological Department’s tradition of monitoring weather and climate spans more than 135 years giving it a sound and useful dataset to fall back upon for environmental assessment. Ozone monitoring network was started as a globally pioneering effort as early as in 1954 realizing that this trace gas plays a very important role in atmospheric chemical mechanisms. It also started radiation measurements about 50 year back and currently maintaining 45 stations in the country for providing exclusive countrywide dataset for assessment of solar energy resources. 5.3.3 A network of 10 Global Atmosphere Watch Stations (GAW, formerly Background Air Pollution Monitoring Network or BAPMoN) consisting of Allahabad, Jodhpur, Kodaikanal, Minicoy, Mohanbari, Port Blair, Pune, Nagpur, Srinagar and Vishakhapatnam, is maintained by IMD as per WMO protocols and standards since 1974 to generate data and information on the exchange of trace materials between the atmosphere and the earth’s surface, making atmospheric turbidity and air quality measurements to quantify trends and acid rain threats. 5.3.4 Atmospheric monitoring: There are 25 types of atmospheric monitoring networks that are operated and coordinated by the IMD. This includes meteorological, climatologically, environment, air pollution and other specialized observation of atmospheric trace constituents. It maintains 559 surface meteorological observatories, about 35 radio-stations and 64 pilot balloon stations for monitoring the upper atmosphere. Specialized observations are made for agro meteorological purposes at 219 stations and radiation parameters are monitored at 45 stations. There are about 70 observatories that monitor current weather conditions for aviation. The IMD collects meteorological data over oceans by an establishment of cooperation fleet of Voluntary Observing Ships (VOF) comprising merchant ships of Indian registry, some foreign merchant vessels and a few ships of the Indian Navy. These ships, while sailing on the high seas, function as floating observatories. Records of observations are passed on to the IMD for analysis and archival.

5.4. Forecast of Rainfall 5.4.1 India receives 80 per cent of its annual rainfall during the southwest monsoon season of June to September. Rainfall over the country during this season shows a wide range of spatial variation due to orographic influences and preferential occurrence of rain-bearing systems in certain regions. India has a very extensive rain gauge network and rainfall monitoring over the country.

5.4.2 The real-time monitoring and statistical analysis of district wise daily rainfall is one of the important functions of the IMD at New Delhi. Based on the real time daily rainfall data, weekly district wise, sub-division wise and state wise rainfall distribution summaries are prepared regularly by the Rainfall Monitoring Unit. Maps showing weekly and cumulative rainfall figures in 36 meteorological subdivisions of the country are prepared. This information is very important to many user agencies, particularly for agricultural planning.

104 Preparedness and Response

5.5. Forecasting System - Background 5.5.1 India Meteorological Department (IMD) follows a two-stage forecasting strategy for long range forecasting of the south-west monsoon season rainfall over the country as a whole. The Long Period Average (LPA) of the south-west monsoon season rainfall over the country as a whole for the period 1951-2000 is 89cm. The first long range forecast for the south-west monsoon season (June-September) rainfall is issued in April and the forecast update is issued in June.

From 2007 onwards, IMD has been using the following statistical models for preparing quantitative and probabilistic forecasts of the south-west monsoon rainfall (June – September) for the country as a whole: a. A 5- parameter statistical ensemble forecasting system requiring data up to March, for the first forecast in April. b. A 6- parameter statistical ensemble forecasting system requiring data up to May for the forecast update in June. Three of these 6-parameters are same as that used for April forecast.

For preparing the first stage forecast for the 2011 South-west monsoon rainfall for the country as a whole presented here, the 5-parameter statistical ensemble forecasting system has been used.

5.5.2 Operational Statistical Forecast System: In the IMD’s Ensemble Statistical Forecasting system for April forecast, the following 5 predictors are used. The model error of the April forecasting systems is ±5%.

Table 5.1: Model error of the April forecasting systems

S.No Predictor Period 1 North Atlantic Sea Surface Temperature December + January 2 Equatorial South Indian Ocean Sea Surface Temperature February + March 3 East Asia Mean Sea Level Pressure February + March 4 NW Europe Land Surface Air Temperature January 5 Equatorial Pacific Warm Water Volume February + March The 5-parameter ensemble statistical forecasting system was also used to prepare probability forecasts for five pre-defined rainfall categories. These are deficient (less than 90% of LPA), below normal (90-96% of LPA), normal (96-104% of LPA), above normal (104-110% of LPA) and excess (above 110% of LPA). The forecasted probabilities in percentage based on this system for the above 5 categories are 6%, 30%, 53%, 10% and 1% respectively. 5.5.3 Experimental Forecasts: IMD has an experimental dynamical forecast system. The experimental ensemble dynamical forecast for the 2011 south-west monsoon rainfall was computed as the ensemble average of 10 member forecasts with forecasted sea surface temperatures (SST) as boundary SST forcing. In addition, IMD takes into account the experimental forecasts prepared by the national institutes like Indian Institute of Tropical Meteorology, Pune, Indian Institute of Science, Bangalore, Space Applications Centre, Ahmedabad, National Aerospace Laboratories, Bangalore, Centre for Mathematical Modelling and Computer Simulation, Bangalore, National Centre for Medium Range Weather Forecasting, Noida and Center for Development of Advanced Computing, Pune.

105 Disaster Management in India

Operational/experimental forecasts prepared by international institutes like the National Centers for Environmental Prediction, USA, International Research Institute for Climate and Society, USA, Meteorological Office, UK, the European Center for Medium Range Weather Forecasts, UK , the Experimental Climate Prediction Center, USA, and World Meteorological Organization’s Lead Centre for Long Range Forecasting - Multi-Model Ensemble were also taken into account. The experimental forecasts from majority of the statistical and dynamical models suggest below normal to normal monsoon season rainfall over the country as a whole. 5.5.4 Sea Surface Temperature Conditions over the equatorial Pacific & Indian Oceans: The El Niño conditions that were originated since June, 2009 peaked in December 2009 and then started to weaken to reach ENSO-neutral conditions in May, 2010. This continued till mid June when weak La Nina conditions emerged. The La Niña conditions strengthened subsequently and become moderate to strong during mid-August 2010 to early February 2011. The La Nina conditions since have weakened to weak to moderate strength as of mid-March 2011. The latest forecasts from a majority of the dynamical and statistical models indicate strong probability for the present La Niña conditions to continue till June. Subsequently the La Nina conditions are expected to weaken further to reach ENSO- neutral conditions. However, it may be mentioned that the climate forecasts prepared at this time of the year has large uncertainty. It is important to note that in addition to ENSO events, other factors such as the Indian Ocean Sea surface temperatures (SSTs) have also significant influence on Indian monsoon. Recent forecasts from some coupled models suggest possibility of the development of a weak negative Indian Ocean Dipole event during the second half of the year, which may not have much impact on the Indian monsoon. As the extreme sea surface temperature conditions over Pacific and Indian Oceans particularly ENSO conditions over Pacific (El Nino or La Nina) are known to have strong influence on the Indian summer monsoon, IMD is carefully monitoring the sea surface conditions over Pacific and Indian oceans. 5.5.5 Forecast for the 2011 South-west monsoon rainfall: IMD’s long range forecast for the 2011 south-west monsoon season (June to September) is that the rainfall for the country as a whole is most likely to be Normal (96-104% of Long Period Average (LPA)). There is very low probability for season rainfall to be deficient (below 90% of LPA) or excess (above 110% of LPA). 2VBOUJUBUJWFMZ
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106 Preparedness and Response

Meteorological Organization (WMO)/ Economic and Social Cooperation for Asia and the Pacific (ESCAP) Panel members countries viz Bangladesh, Myanmar, Thailand, Sri Lanka, Maldives, Pakistan and Oman. IMD, New Delhi also works as a Tropical Cyclone Advisory Centre (TCAC) for international civil aviation as per the requirement of International Civil Aviation Organization (ICAO) 5.6.2 The cyclone warning are issued to State Government officials in four stages: i.e. (i) pre-cyclone watch issued 72 hours in advance, (ii) cyclone alert issued at least 48 hours in advance , (iii) cyclone warning issued at least 24 hours in advance, and (iv) as post landfall outlook issued at least 12 hours in advance of expected time of landfall. IMD has prepared roadmap for cyclonegenesis and further intensification, monitoring and prediction. 5.7. Flood Forecasting – Central Water Commission27 5.7.1 The flood forecasting and warning system is used for alerting the likely damage centre well in advance of the actual arrival of floods, to enable the people to move and also to remove the moveable property to safer places or to raised platforms specially constructed for the purpose. 5.7.2 A beginning in scientific flood forecasting was made in November, 1958 by CWC (then known as Central Water & Power Commission) when a Flood Forecasting Centre was set up at its Headquarters, at Delhi for giving timely Forecasts and Warnings of the incoming floods to the villages located in the river areas around the National Capital, Delhi. The network has been expanding and by now the Flood Forecasting Network of the CWC covers the entire major flood prone inter State basins in the country. 5.7.3 The flood forecasting involves the following four main activities: (i) observation and collection of hydrological and hydro meteorological data, (ii) transmission of Data to forecasting centres, (iii) analysis of data and formulation of forecast, and (iv) Dissemination of forecast. 5.7.4 On an average 6000 forecasts at various places in the country are issued during the monsoon seasons every year. The analysis of the forecasts issued during the last 25 years (1978 to 2002) indicates that accuracy of forecasts has consistently increased from around 81% to 98%. Forecast is considered accurate if forecast water level is within + 15 cm of actual water level of the inflow forecast (i.e. discharge) and is within + 20% of actual discharge. 5.7.5 In monitoring the floods, severity of floods are placed in the following four categories by the CWC (i) Low Flood stage – It is that flood situation when the water level of the river is flowing between warning level and danger level of the forecasting stations. (ii) Medium flood stage – The river is called in medium floods when its water level is at or above the danger level of the forecasting station but below 0.50 of its highest flood level (HFL)

107 Disaster Management in India

(iii) High flood state – When the water level of the river is below the HFL but within 0.50 m of the HFL of the forecasting stations. (iv) Unprecedented flood stage – The river is called in unprecedented floods when it attains water level equal to or above its previous HFL at any forecasting stations. 5.7.6 A computerized monitoring system has been developed under which daily water levels as observed at 0800 hours and forecasts issued by field units are transmitted to CWC headquarters in New Delhi. Based on the compilation of all such data received from field divisions, daily water level and flood forecast bulletins in two parts for stage and for inflow forecasting stations respectively. 5.8 Tsunami warning – Indian National Centre for Oceanic Information System (INCOIS)28 5.8.1 Post tsunami dated 26th December, 2004, Ministry of Earth Sciences has established the Indian National Tsunami Warning System at Indian National Centre for Ocean Information Services (INCOIS), Hyderabad. The Tsunami Early Warning System (TEWS) was made operational on 15th Oct 2007. This agency has developed a protocol for issue for Tsunami Watch, Alert and Warnings. The Centre gives information to all responders about the origin, time, location of the epicenter, magnitude and depth of an earthquake inside the ocean and accordingly issues bulletins.

5.8.2 The system is capable of detecting all earthquake events of more than 6 Magnitude occurring in the Indian Ocean in less than 20 minutes of occurrence and first report on the occurrence of an earthquake in India and the Indian Ocean region to sent to MHA within 25- 30 minutes indicating the location and magnitude of the earthquake. Further, if any rise in water level is reported by NIOT, TEWC would issue a Tsunami warning within 60 minutes of the occurrence of the earthquake. The information so generated would be disseminated through various communication channels to the concerned user agencies in a fully automated mode.

5.9 Warning about Landslide hazard – Geological Survey of India (GSI) 5.9.1 Geological Survey of India (GSI), established in 1851 is a government organization under the Union Ministry of Mines with the Headquarter at New Delhi for conducting geological surveys and studies. It is one of the oldest of such organizations in the world. 5.9.2 The GSI was designated as nodal agency for coordinating geological studies, landslides hazard zonation, monitoring landslides, avalanches, studying the factors responsible and suggesting precautionary and preventive measure on 29th January, 2004. The input from GSI as nodal agency help the Ministries and Departments concerned in the Central Government as well as the State Government for taking appropriate preventive and mitigation measures for reducing landslide hazard and responding in the mountainous areas and hill in the Himalayan and sub Himalayan regions. GSI is the nodal agency responsible for early warning relating to the landslides in the country. 5.9.3 Study of Land Contour by GSI: Geological Survey of India (GSI) studies the shape and material of the land getting inundated and generates data on area, shape, slope, infiltration and permeability of soil of the basin, drainage pattern, landform and longitudinal and cross profiles of the channels. On the basis of these studies, GSI produces flood hazard maps indicating

108 Preparedness and Response

Prohibitive, Restricted, Cautionary and Flood Free Zones. Significant flood related studies and recommendations made by GSI are as follows: t
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109 Disaster Management in India has successfully operationalised two major satellite systems namely Indian National Satellites (INSAT) for communication services and Indian Remote Sensing (IRS) satellites for management of natural resources; also, Polar Satellite Launch Vehicle (PSLV) for launching IRS type of satellites and Geostationary Satellite Launch Vehicle (GSLV) for launching INSAT type of satellites. 5.11.3 The Disaster Management Support (DMS) Programme of ISRO, provides timely support and services from aero-space systems, both imaging and communications, towards efficient management of disasters in the country.. The DMS programme addresses disasters such as flood, cyclone, drought, forest fire, landslide and Earthquake. These include creation of digital data base for facilitating hazard zonation, damage assessment, etc., monitoring of major natural disasters using satellite and aerial data; development of appropriate techniques and tools for decision support, establishing satellite based reliable communication network, deployment of emergency communication equipments and R&D towards early warning of disasters. 5.11.4 To support the total cycle of disaster (emergency) management for the country in near real time, the database creation is addressed through National Database for Emergency Management (NDEM), a GIS based repository of data. NDEM is envisaged to have core data, hazard-specific data and dynamic data in spatial as well as spatial form. 5.11.5 Airborne ALTM-DC data acquisition is being carried out for the flood prone basins in the country. The development of flight model of C band DMSAR is nearing completion. SAR data was acquired over selected basins using Development model of DMSAR. Towards providing emergency communication for disaster management activities and at the behest of Ministry of Home Affairs, ISRO has set up a satellite based Virtual Private Network (VPN) linking the National Control Room at MHA with DMS-DSC at NRSC, important national agencies, key Government Offices in Delhi and the Control Rooms of 22 multi-hazard-prone States. Further ISRO has developed and deployed INSAT Type-D terminals (portable satellite phones), INSAT based Distress Alert Transmitter (DAT) for fishermen, Cyclone Warning Dissemination System (CWCS) and DTH based Digital Disaster Warning System (DDWS) in disaster prone areas. 5.11.6 As part of R&D support to DMS for remote sensing applications, work on Tropical Cyclone Track intensity and landfall prediction, Earthquake Precursor studies, Coastal Vulnerability mapping and Early Warning of Landslides are being carried out. 5.11.8 The DMS programme is also supporting the many international initiatives by sharing data and information. Through International Charter “Space and Major Disasters” and Sentinel Asia (SA) initiative for supporting disaster management activities in the Asia-Pacific region, ISRO is providing IRS datasets and other information for use during major calamities.

5.12 Radiological and Nuclear Emergencies 5.12.1 Department of Atomic Energy (DAE) is the nodal agency for providing the necessary technical inputs to the National or local authorities for responding to any nuclear or radiological emergency. The Ministry of Home Affairs (MHA) is the nodal ministry to coordinate with the various response agencies in the event of any nuclear or radiological disaster in the public domain. A Crisis Management Group (CMG) has been functioning since 1987 at DAE for this purpose. This Group is chaired by the Additional Secretary, DAE, and has on board expert members from different units of DAE and Atomic Energy Regulatory Board (AERB). Each member has an alternate member and CMG is backed by resource agencies of various units of DAE.

110 Preparedness and Response

5.12.2 Based on the radiological conditions and their consequences, emergencies at nuclear facilities are categorized as emergency standby, personnel emergency, plant emergency, on-site emergency and off-site emergency. As a basic regulatory requirement, emergency preparedness exists at all nuclear and radiation facilities to respond to any on-site or off-site emergency in their areas. But to handle radiological emergencies arising from a transport accident or from the movement or handling of ‘orphan source’ (radioactive sources that have lost regulatory control is called ‘orphan sources’) or due to malevolent acts like explosion of an RDD, Radiation Exposure Device (RED) or IND any time or anywhere in the country, a network of 18 units of Emergency Response Centers (ERCs) has been established by Bhabha Atomic Research Center, DAE. These ERCs are equipped with radiation monitoring instruments, protective gear and other supporting infrastructure. 5.13 Installation of Radiological Detection Equipment 5.13.1 As a part of preparedness measure Radioactive Detection Equipments (RDE’s) are being installed at entry and exit points in the country. On the initiatives of MHA and in consultation with the various Stakeholders, the Bhabha Atomic Research Centre (BARC) and Electric Corporation of India Limited (ECIL) a technical survey of the entry and exit points in a phased manner was undertake for installation of the RDE’s. The survey for installation of RDEs at 29 entry/exit points has been identified by BARC (12 seaports, 14 airports and 3 international borders).

5.13.2 The responsibility of installation of these RDE’s rest with the concerned Ministries and Departments as the responsibility for allocating funds for prevention, mitigation etc. for Disaster rests with the concerned Central Ministries and Departments. As such Ministry of Shipping, Ministry of Civil aviation and Ministry of Home Affairs are taking necessary action to carryout installation of RDE’s in the time bound manner in consultation with BARC and ECIL. The ports / land crossing identified for the purpose are given as follows in Box 5.2.

Box 5.2: The port/land crossing identified for the purpose of installation of RDE Areas of installation Location Ministry responsible International Airports IGIA New Delhi, NSCBA, Kolkata, Ministry of Civil Aviation Mumbai, Chennai, Goa, Ahmedabad, Hyderabad, Amritsar, Kalicut, Trivandrum, Guwahati, Cochin, Bangalore and Lucknow. International Sea port Kandla, Chennai, Mumbai, Haldia, Ministry of Shipping Kolkata, Vizag, Goa, Ennore, Cochin, Tuticorin, Paradeep, JNPT Mumbai. Land border crossing Wagah-Attari, Jogbani and Raxaul. Ministry of Home Affairs

5.14 Director General of Mines Safety 5.14.1 Mining activity accounts for about 1% of the world employment but contributes to about 7% fatalities at the work place. In 1901 the then British Government in India established Bureau of Mines (now Directorate General of Mines Safety) with its headquarter at Calcutta with the object to enforce provisions of Mines Act. Till 1985, the Director General of Mines Safety was also entrusted with the job of covering the rescue and recovery operations at mines. The Rescue Station was headed by an Ex-officio Director of DGMSand the rescue was funded by a cess collected

111 Disaster Management in India

from the coal companies. Rescue Rules under Mines Act, 1952 were framed in 1985 according to which standards/quantity/type of equipment/place of rescue station etc. were also governed.

5.14.2 Coal companies have provided and maintained rescue station in the heart of coal mining areas namely at Sitarampur (WB), Dhanbad (Jharkhand), Manindragarh (Chhatisgarh), Indora (Nagpur), Ramgarh (Jharkhand), Karimnagar (AP) etc. In case of Metalliferous sector, rescue room at the mine level/rescue station at the company level have been provided and maintained in the centrally located of mining areas by various companies engaged in metal mining, namely HZL at Udaipur (Rajasthan); UCIL at Jadugoda (Jharkahnd); MOIL at Balaghat (Nagpur); HGML at Hutti ( Karnataka); HCL at Khetri,( Rajasthan) etc.

5.15 Epidemic

5.15.1 Three core capacities are essentially required to deal with epidemics. These are

(i) Establishment/strengthening of a laboratory based disease surveillance system to collect baseline data on infectious diseases, monitor disease trends and to detect epidemics in early rising phase,

(ii) Development of epidemiological, clinical, entomological and laboratory capacities to investigate the epidemics to characterize the cases in terms of time, person and place and to understand the transmission dynamics, and

(iii) Development of response capacities to prevent/control the epidemics to reduce the morbidity and mortality to the minimum.

5.15.2 The outbreaks/epidemics are usually investigated by the district or state Rapid Response Teams. Several central/regional institutes like National Centre for Disease Control (formerly National Institute of Communicable Diseases), Delhi; National Institute of Virology, Pune; National Institute of Cholera and Enteric Diseases, Kolkata; Vector Control Research Centre, Puducherry and other ICMR institutes provide epidemiological, laboratory and entomological support to the states for investigation and control when the outbreaks/epidemics are widespread and states request for assistance. Also there is increasing collaboration with Department of Animal Husbandry in managing emerging zoonotic diseases such as avian influenza and Crimean Congo Hemorrhagic fever.

5.16 Preparedness 5.16.1 Annual Conference of Relief Commissioners and Secretaries of States and UTs: An annual Conference of Relief Commissioners, Secretaries, to the Department of Disaster Management of States and UTs is organized before the onset of south west monsoon to review the status of preparedness for ensuing Monsoon and to discuss other disaster management related issues. The representatives of various Central Ministries, Organizations rendering Emergency Support Functions besides representatives of Central Para-Military Forces also participate.

5.16.2 Issue of guidelines: Necessary guidelines in the form of checklist as given in Box 5.3, for taking necessary preparatory measures are issued to the State for their guidance and appropriate action. Instructions are also issued for creating reserves of essential items required during rescue and relief phase.

112 Preparedness and Response

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5.18 Crisis Management Plan (CMP) and Standard Operating Procedures (SOPs) 5.18.1 In accordance with National Crisis Management Plan 2003 of the Cabinet Secretariat, MHA has formulated its CMP 2004 and circulated it to all States and UTs. The CMP of MHA comprises of two parts; Part-I deals with aspects, which are common to all contingencies situations and Part-II about the individual Standard Operating Procedures (SOPs) for dealing with specific crisis situation. SOPs are preparedness plan which emerges and activates the procedure for response on receipt of calamity or receipt of figure of impending disaster. It identifies the financial and administration powers to the people made responsible for the procedure. 5.18.2 The CMP of MHA is reviewed periodically. It was last reviewed in 2009 and was circulated to all Ministries and Departments of Central Government as well as States and UTs. An SOP for management of Natural Disasters formulated by this Ministry has also been circulated vide this Ministry’s letter No.32-35/2003-NDM-I dated 21-04-2009. 5.18.3 The State Governments have been advised to formulate the similar kind of the CMP and SOPs. MHA has conducted number of training workshops for the States and UTs for assisting them in formulation of the SOPs. 5.19 Role and Responsibility of Central and State Governments 5.19.1 Ministry of Home Affairs is the nodal Ministry for management of natural disasters (other than drought, hailstorm and pest attack, which are handled by Ministry of Agriculture) on behalf of the Government of India. Disaster Management Division (DM Division) performs the function in the Ministry of Home Affairs. 5.19.2 The Central and State Governments are jointly responsible for undertaking relief, rehabilitation, preparedness, mitigation and response measures. The basic responsibility for undertaking these measures in the event of a disaster rests with the concerned State Government. The Central Government supplements the efforts of the State Governments by providing logistic and financial support in case of natural calamities of severe nature. The logistic support includes

113 Disaster Management in India deployment of aircrafts and boats, specialist teams of Armed Forces, Central Paramilitary Forces and personnel of National Disaster Response Force (NDRF), arrangements for relief materials & essential commodities including medical stores, restoration of critical infrastructure facilities including communication network and such other assistance as may be required by the affected States to meet the situation effectively. 5.19.3 DM Division of MHA closely monitors the disaster and disaster like situation to facilitate strategic interventions in the form of logistic and financial support by the Government of India to augment the resources of the affected States and UTs to deal effectively with each disaster situation. For this purpose close liaison is made with the affected States on the one side and the concerned Central line Ministries such as Ministry of Health, Ministry of Defence Ministry of Civil Aviation, Food and Civil Supplies etc on the other. 5.20 Inter Agency Co-ordination Mechanism Co-ordination at the Central and the State level is achieved by way of various committees involving all departments that are working in Disaster management. A response set-up across the country may be viewed in Figure 5.1. 5.21 Cabinet Committee on Management of Natural Calamities It is constituted to t
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The Committee is to be serviced by Ministry of Home Affairs in all cases except in cases relating to Drought Management and Epidemics when it is serviced, as the case may be, by the Department of Agriculture and Cooperation and Department of Health and Family Welfare.

5.22 National Crisis Management Committee (NCMC) At the Centre, under the Chairmanship of the Cabinet Secretary the NCMC has been constituted in the Cabinet Secretariat. The other members of this Committee include the Secretary to the Prime Minister, Secretaries of the Ministries of Home Affairs, Defence, Information & Broadcasting, RAW, NDMA, Deputy NSA and Director of Intelligence Bureau. Secretary (Security) Cabinet Secretariat is the convener of the NCMC. The NCMC gives direction to the Crisis Management Group as deemed necessary.

5.23 Crisis Management Group (CMG)/National Executive Committee This is a group under the Chairmanship of the Home Secretary comprising the senior officers from the various ministries and other concerned departments. CMG’s function is to review contingency plans every year formulated by the Central Ministries/ Departments and the measures required for dealing with a natural disaster; co-ordinate the activities of the Central Ministries and the State Governments in relation to disaster preparedness and relief and to obtain

114 Preparedness and Response

Figure 5.1: Response set up across the country

CABINET COMMITTEE ON DISASTER MANAGEMENT Chairman: Prime Minister

WARNING NATIONAL CRISIS (Nodal MANAGEMENT COMMITTEE Secretaries of all agencies) Head: Cabinet Secretary line Ministries Ph: 011 23016696

MHA Control Room (24x7) Ph: 011 23093054 NATIONAL EXECUXEC TIVE IDS OPS Room 011 23092763 COMMIMITTTEE (24 X 7) Ministryy ofof Home Affairs Ph: 011 23005134 HHomeo Secretary PPh: 011 23092989

Disaster Survei- llance Directors - Response, Logistics, AFFECTED SITE - Preparedness & Mitigation DM-I - 011 24642853 - Relief and DM-II - 011 24622543 Rescue DM-III - 011 24642381 Operations State Control - Establish Room (S- EOC) Communica- Department of tion Network Relief STATE CRISIS - Drinking & Disaster MANAGEMENT GROUP Management Water Restora- Head: CHIEF SECRETARY tion of Power - Prevention of Outbreak of Epidemics

District Control Room (D-EOC)

115 Disaster Management in India information from the nodal officers on measures relating to the above. The Joint Secretary (DM) is the Convener of CMG for natural disasters.

5.24 Role of the State Government 5.24.1 In the context of federal set-up of India, the responsibility to formulate the Governments response to a natural calamity is essentially that of the concerned State Government. However, the Central Government, with its resources, physical and financial does provide the needed help and assistance to buttress relief efforts in the wake of major natural disasters. The dimensions of the response at the level of National Government are determined in accordance with the existing policy of financing the relief expenditure and keeping in view the factors like.

(i) gravity of a natural calamity, (ii) scale of the relief operation necessary, and (iii) Requirements of Central assistance for augmenting the financial resources at the disposal of the State Government. 5.24.2 Most of the States have Relief Commissioners under the Department of Disaster Management, who are in charge of the relief measures in the wake of natural disasters. In the absence of the Relief Commissioner, the Chief Secretary or an Officer nominated by him is in overall charge of the Relief operations in the concerned State. 5.24.3 At the state level, the State Relief Commissioner supervises and controls relief operations through Collectors or Deputy Commissioners, who are the main functionaries to coordinate the relief operation at district level. The State Governments are autonomous in organizing relief operations in the event of natural disasters and in developing the long-term rehabilitation measures. The State Government’s efforts are supplemented by central Government based on the recommendations of the Finance Commission.

5.25 State Crisis Management Group (SCMG) 5.25.1 There is a State Crisis Management Group (SCMG) under the Chairmanship of Chief Secretary and Relief Commissioner. This Group comprises senior officers from the Departments of Revenue/relief, Home, Civil Supplies, Power, Irrigation, Water Supply, Panchayat (local self- government), Agriculture, Forests, rural Development, and health, Planning, Public Works and Finance. 5.25.2 The SCMG is required to take into consideration the guidance received, from time to time, from Government of India and formulate action plans for dealing with different natural disasters. It is also the duty of the Relief Commissioner of the State to establish a Emergency Operation Center (Control Room) at State headquarters as soon as a disaster situation develops. Besides having all updated information on forecasting and warning of disaster, the EOC would also be the contact point for the various concerned agencies.

5.26 Role of District Administration 5.26.1 The district Administration is the focal point for field level organizations. It is responsible for implementation of all government contingency plans. Considerable powers have therefore been wrested upon the District Collector to carry out operations in the shortest possible time.

116 Preparedness and Response

5.26.2 The District Administration in the country is required to prepare an advance Contingency Plan depending on the type of disaster likely to affect the district. Contingency Plans are to follow a framework as laid down nationally which comprises type of preparedness, the relief material required to be mobilized and the concerned departments that need to work together and provide an efficient feedback and monitoring system.

5.26.3 The District Magistrate exercises coordinating and supervisory powers over functionaries of all the Departments at the district level in the event of emergencies. During actual operations for disaster mitigation or relief, the powers of the Collector are considerably enhanced, generally, by standing instructions or orders on the subject, or by specific Governments orders, if so required. Sometimes, the administrative culture of the State concerned permits, although informally, the collector to exercise higher powers in emergency situations and the decisions are later ratified by the competent authority.

5.26.4 District Relief Committee: The district level Relief Committee consisting of official and non-official members including the local Legislators and the Members of Parliament reviews the relief measures.

5.27 Role of Sub-district Administration A District is sub-divided into sub-divisions and Tehsils or Talukas. The head of a sub-division is called the Sub-Divisional Officer (SDO) while the head of a Tehsil is generally known as the Tehsildar (Talukdar or Mamlatdar in some States). Contact with the individual villages is through the village Officer or Patwari who has one or more villages in his charge. When a disaster is apprehended, the entire machinery of the District, including officers of technical and other Departments, swings into action and maintains almost continuous contact with each village in the disaster threatened area. In the case of extensive disasters like drought, contact is maintained over a short cycle of a few days. The entire hierarchy right from the Central Government (the Department of Agriculture and Cooperation in the Ministry of Agriculture and irrigation) to the District level is connected by means of a telecommunication system.

Control Rooms

5.28 National Emergency Operation Centre (NEOC) 5.28.1 The National Emergency Operation Centre (NEOC) in the Ministry of Home Affairs functions 24X7 to monitor the disaster or disaster like situation. Based on the feedback received from National Forecasting Agencies viz Indian Meteorological Department, Central Water Commission, Snow & Avalanche Study Establishment etc. advisories to the concerned States/UTs are issued from time to time for keeping watch on the developing situation and take necessary measures such as evacuation of the vulnerable persons, operation of relief camps, pre positioning of essential commodities etc.

5.28.2 During the south west monsoon, daily situation reports (sitreps) are prepared based on the feedback received from the affected States and concerned Central Ministries and organizations, and are sent to all concerned. During the calamities of severe nature, special situation reports are also prepared and issued to all concerned. NEOC also issue SMS alerts to the concerned

117 Disaster Management in India

Mock drill by NDRF, Mangalore officers in MHA, PMO and Cabinet Secretariat. These reports are also uploaded on the website www.ndmindia.nic.in..

5.29 State Control Room There is a State Level Control Room set up whenever a disaster situation develops. The Control Room is responsible for:

(i) Transmitting information about the development of a crisis as a result of natural disaster on continued basis to the Central Relief Commissioner.

(ii) Receiving instructions and communicating them to appropriate agencies for immediate action.

(iii) Collection and submission of information relating to implementation of relief measures to the Central Relief Commissioner; and

(iv) Keeping the State level authorities apprised of the developments on a continuing basis.

5.30 District Control Room Likewise in the wake of natural disasters, a Control Room is set up in the district for day-to- day monitoring of the rescue and relief operations on a continuing basis, operationalising the contingency plan and keep close liaison with the State Headquarters, NGOs and other agencies dealing with disaster management and relief.

5.31 National Disaster Response Force (NDRF) 5.31.1 Task and role of NDRF: The main task of NDRF is to provide specialist response in case of disasters which broadly covers: t
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119 NDRF in action for rescue operation - Bihar floods Disaster Management in India t
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Table 5.2: NDRF : Response Activities Year No. of Activities 2007 20 2008 25 2009 23 2010 17 Total 85 Victims Rescued 1.41 Lakhs Dead bodies retrieved 330

Source: NDMA 5. 32 State Disaster Response Force (SDRF) The States/UTs have also been advised to set up their own Specialist Response force for responding to disasters on the lines of National Disaster Response Force vide Ministry of Home Affairs letter dt 26th July 2007 and vide this Ministry’s letter dated 08 March 2011. The Central Government is providing assistance for training of trainers. The State Governments have been also advised to utilize 10% of their State Disaster Response Fund and Capacity Building Grant for the procurement of search and rescue equipment and for training purposes of the Response Force. 5.33 Policy for Acceptance of External Assistance The present policy of Government of India is to not issue a formal appeal on behalf of the Government, either directly or through any other agency, to attract relief. However, relief donated on a voluntary basis are accepted and acknowledged as a sign of international solidarity. There is no objection to NGO’s issuing appeals for donations provided it is clear that the appeals are not at the instance of the Government of India. In the case of UN organisations and agencies (like OCHA) such appeals would imply endorsement by member countries and they are advised against appeals for international assistance.

120 Preparedness and Response

5.34 Drought Relief Measures 5.34.1 Management of drought has now been outlined in much elaborated manner in the drought manual issued by ministry of Agriculture and cooperation.

5.34.2 Following drought declaration, planning and implementation of drought relief and response measures is initiated. It is necessary that these measures are undertaken promptly so that it would mitigate the hardship faced by the people. Though these measures are sector specific, they require immense inter department coordination. Implementing these measures would require a continuous flow of information from the village level to the highest level of decision making in the State and a responsive administrative structure. It would also require careful financial planning so that the implementation of these measures could be undertaken on a sustained basis.

5.34.3 Contingency crop planning: Ministry of Agriculture, Government of India, Indian Council of Agricultural Research (ICAR), State Government agriculture departments and agricultural universities need to prepare the contingency crop plan and disseminate it among farmers with the help to support agencies, mentioned below. The alternative crop planning involves choosing suitable crops and / or crop varieties, alternative crop strategies, mid season’s corrections and crop life saving measures.

5.34.4 Relief employment: The most important relief component is the generation of employment provision during the drought period. As soon as drought is declared, it is therefore, necessary for the State Governments to immediately start relief employment programmes and provide work to those who need employment within a radius of five kilometers.

5.34.5 Most State Governments have their own food for work programme. The Government of India has started the National Rural Employment Guarantee Scheme (NREGS), providing 100 days of employment to one person per family on demand. The scheme has been extended to the entire country. A large number of public works and watershed programmes could be supported through the NREGS. These programmes together can create substantial employment to tide over the hardship and deprivation caused by drought.

5.34.6 Water resource management: Water resource management in the drought affected areas is one of the most critical tasks of relief operations. It requires diverse measures such as augmentation of water supply, rationing of water use, and efficient utilization and management of water resources, in both urban and rural areas. Shortage of water is one of the earliest indicators of drought, affecting the entire society, rural and urban. Assessing the demand for water and its total availability in a specific region, therefore, is extremely important for meeting the needs of different user groups.

5.34.7 Food security Food security is one of the most important objectives of drought management. It is provided through food for work programmes, which are started by the State Governments to provide relief employment. Wages on these relief employment works are paid in the form of foodgrains, on a full or partial basis.

5.34.8 The National Rural Employment Guarantee Scheme (NREGS), extended to all the districts across the country, guarantees employment opportunities in the rural areas by providing work that taps labour intensive community assets. It assures manual work to one person per family for a maximum of 100 days in a year.

121 Disaster Management in India

5.34.9 Relief through tax waivers and concessions : The primary objective of the tax waivers and concessions would be to help people meet their basic entitlements. The State Government can take a conscious decision to provide a number of tax waivers and concessions when a drought is declared. These tax waivers and concessions should be decided on the basis of the entitlement needs of certain segments of the population and the fiscal implications of such a relief to the State Government. Each State Government may decide on tax waivers and concessions to the people affected by drought, depending on fiscal situation of the State and severity of the drought. 5.34.10 Cattle camps and fodder supply: State Governments need to support their farmers in protecting their cattle population during a drought School preparedness; Photo: seedsindia.org situation by providing necessary assistance for fodder, feed, and cattle health. During a drought situation, every measure needs to be taken to save useful cattle. When cattle wealth is seriously depleted the recovery is very slow. While sheep and goats have a potential for rapid growth, perhaps 25% a year or more, the growth of cow, buffaloes and camels is much slower, rarely more than 1-2% a year in a sustained manner. It is necessary to provide support to farmers for fodder so that they do not engage in distress selling of their cattle. 5.34.11 Health and hygiene: In a drought situation, health issues are largely related to contamination of water and spread of infection among the workers participating in public works programmes. People have less immunity in drought situations due to poor levels of nutrition. Necessary precautions need to be taken to prevent the spread of any water borne epidemic and other infectious diseases. 5.34.12 Institutional response: Drought management requires a strong institutional structure to monitor and provide a timely response to drought. While it is primarily the responsibility of the State Government to manage drought, the Central Government also plays an important role in monitoring drought and providing financial assistance to the States. The district administration headed by the Collector plays the most critical role in responding to drought on the ground. At the Central level, the Ministry of Agriculture is the department responsible for drought monitoring and management. 5.34.13 Role of Panchayati Raj institutions: It is necessary to involve the Panchayati Raj Institutions (PRIs) – Zila Parishads, Panchayat Samitis and village Panchayats in the implementation of drought management programmes.

122 Preparedness and Response

5.34.14 Financing relief expenditure: In post independent India, financing relief expenditure has largely been arranged through the Finance Commission appointed under Article 280 of the Constitution. In the earlier phases the role of the Commission was restricted to suggesting the pattern of financial assistance by the centre. Subsequently the recommendations were enlarged to cover the “scheme of financing relief expenditure”. 5.34.15 Information management and media coordination :The Central and State Governments should provide information on all aspects of drought to the people and media. It is necessary to inform the people about the severity and impact of drought and the measures being taken to alleviate the drought situation. 5.35 Conclusion The preparedness and response phase in the Disaster management cycle are critical in reducing the impact of disasters. The involvement of multi-various stakeholders, therefore, need to ensure efficient inter-departmental coordination and need to constantly review and improve the systems in place. It has to be kept in mind to ensure that the focus on these two areas help in bringing a tangible improvement in handling the disasters.

123 Disaster Management in India Recovery, Reconstruction and Rehabilitation 6.1 Background 6.1.1 The International Strategy for Disaster Reduction (ISDR) defines recovery as the “decisions and actions taken after a disaster with a view to restore or improve the pre-disaster living conditions of the stricken community, while encouraging and facilitating necessary adjustments to reduce disaster risk”.

6.1.2 While emergency response is vital as it is aimed at saving human lives and providing relief, the ultimate objective of any crisis management is restoration of devastated livelihoods. Recovery efforts following rescue and relief in any disaster can be classified into short term and long term. The short term activities for recovery are debris clearance, providing semi-permanent shelter and ensuring sanitation and restoring lifelines, while the long term activities involve building a safer and more sustainable livelihood.

6.2 Nature of Recovery 6.2.1 The damage caused by floods, earthquakes and cyclones is on a much larger scale than other disasters and recovery after these disasters poses a challenge. In disasters like drought, the relief phase is prolonged and since there is no damage to the infrastructure and property, the rehabilitation is confined to restoration of livelihoods which can get subsumed in normal development programmes.

6.2.2 Recovery in case of epidemics is more in the form of sanitising the locality against any future recurrence and may also involve counseling of the victims. Industrial disasters being quite varied in nature, the rehabilitation in major ones like the ‘Bhopal Gas Tragedy’ could involve rehabilitation efforts spanning over a generation of victims apart from restoring livelihoods and providing social and psychological assistance.

6.2.3 Rehabilitation following disasters such as landslides and avalanches is localised and is of a similar nature as in earthquakes but on a smaller scale. Finding safer sites near such locations often poses challenges and resistance.

6.3 Guiding Principles for Post-Recovery Box 6.1 illustrates the principles applied generally based on international practices.

Box 6.1: Guiding Principles for Post- Recovery x Mainstreaming disaster risk reduction in recovery and development process, x Improving coordination, x Promoting participatory approaches and decentralising planning and programming for recovery, x Enhancing safety standards and integrating risk reduction in reconstruction and development, x Improving the living conditions of the affected communities and sectors, x Building local and national capacities for increased resilience, risk management and sustainable development, x Taking advantage of ongoing initiatives, x Gender sensibility, x Demonstrative effects, x Monitoring, evaluation and learning.

Source: GFDRR

125 Disaster Management in India

6.4 Assessment The first step after stabilizing the situation by providing sufficient relief is to assess the damage. A meticulously executed assessment exercise would provide an ideal base for the rehabilitation efforts. This exercise is best carried out through multi-disciplinary teams which go into all aspects of damage (social, economical, psychological) in participation with the local community. Based on the assessment of the damage and the needs, a recovery strategy has to be formulated. The strategy should include all interventions - economic, social, political and psychological. The resources should be identified and the roles and responsibilities of all concerned should be defined. 6.5 Co-ordination 6.5.1 Following any major disaster, a number of players arrive on the scene and as already stated, ensuring proper coordination amongst them thus becomes very important. Recovery activities are taken up by government agencies, local bodies, international agencies, voluntary organisations and others, through separate, overlapping and uncoordinated interventions. This leads to imbalances in the scale of operations, duplication of efforts in some areas, gaps in others and leakage and misuse of resources. Therefore establishing a framework for coordination is necessary for effective recovery. The role of voluntary organisations including international ones like the Red Cross is extremely useful for mitigating the impact of disaster. 6.5.2 The administration is also required to set up a voluntary organisations’ coordination centre to coordinate the relief and rehabilitation activities of the multiple organisations so that they are not concentrated in a few pockets. It is often observed that post-disaster recovery efforts tend to focus on rapid and visible solutions to restore normalcy at the cost of sustainable development. The post-disaster recovery phase provides a ‘window of opportunity’ for disaster risk reduction. Risk reduction aspects should therefore be built into the redevelopment process. 6.6 Shelter Shelter is one of the most visible and immediate needs in post-crisis settings. Relief efforts are often focused on providing shelter quickly, without taking into account the impact of short- term shelter strategies. Long-term shelter strategies help not only to focus on determination and implementation of realistic and permanent reconstruction plans for the affected communities, but are also concerned with rebuilding community confidence and support structure for civic responsibility and urban governance, through participatory planning of reconstruction. The development of disaster resistant housing is a major factor in reducing vulnerability to disasters. However, shelter issues in mitigation go beyond the structural aspects. Rights to ownership and security of tenure make an enormous difference to the maintenance, management and development of shelter, particularly in urban areas. 6.7 Sustainability in Recovery Process Normally, it is seen that the recovery efforts have a tendency of tapering off with the passage of time. The Bureau for Crisis Prevention and Recovery of the UNDP has also observed “the general experience is that once the initial flurry of activities of providing rescue and relief is over, the attention received by the recovery efforts goes on declining steadily over a period of time and ‘business as usual’ sets in”. The sustainability component in recovery process therefore is important. This could be achieved by capability building of the community and awareness generation and preparing local crisis management plans.

126 Recovery Reconstruction and Rehabilitation

6.8 Accountability A system of accountability needs to be evolved during the relief and rehabilitation phase. This system should ensure that the relief material reaches the target groups and that the funds are being utilised efficiently and optimally. A grievance redressal mechanism should also be put in place. 6.9 Evaluation After the recovery phase, it is necessary to conduct a detailed evaluation of all aspects of crisis management. This should bring out the strengths and weaknesses of the disaster management machinery and also provide the basis for future improvements. Such an evaluation should be carried out by an independent professional agency like the NIDM, in all major disasters. This assessment should also include a quick audit of the expenditure incurred. 6.10 Guidance Notes on Recovery The International Recovery Platform (IRP) and United Nations Development Programme India have developed Guidance Notes on Recovery on nine sectors namely Shelter, Infrastructure, Gender, Livelihood, Environment, Governance, Climate Change, Health and Psycho-social support. These are initial steps in documenting, collecting and sharing disaster recovery experiences and lessons. This collection of the successes and failures of past experiences in disaster recovery is expected to help in the planning and implementation of future recovery initiatives. The aim of the guidance notes is not to recommend actions, but to place before the personnel involved in the risk-reducing recovery process a menu of options. The sector specific Guidance Notes are primarily intended for use by policymakers, planners, and implementers of local, regional and national government bodies interested or engaged in facilitating a more responsive, sustainable, and risk reducing recovery process. Since the governments are not the sole actors in disaster recovery and IRP believes that the experiences collected in this document can benefit many other partners working together to build back better. These Guidance Notes on different sectors are available on their website www.recoveryplatform.org.

6.11 Some Indian Experiences in Recovery in the Last Two Decades Few experiences of post disaster recovery rehabilitation and reconstruction works are illustrated in the subsequent paras. This shows the experiences which country as a whole has gathered in course of its recovery process after the event of different kind of disasters whether human induced or natural. This may guide the responders in the future such endeavors and may also help them to take corrective measures. 6.12 Bhopal Gas Tragedy (1984) 6.12.1 The Bhopal Gas Tragedy is one of the world’s worst industrial catastrophes. It occurred on the night of 2-3 December, 1984 at the Union Carbide India Limited (UCIL) Pesticide plant in Bhopal which was the Indian subsidiary of Union Carbide Corporation, USA. The accident occurred due to leakage of Methyl Iso Cynate (MIC) and other chemicals due to ingression of water and the resulting reaction affected a large number of persons. Approximately 2000 people are known to have died in the first 72 hours and large proportion of the survivors suffered acute multi-system morbidities (eyes and lungs were the target organs). The ICMR estimated that approximately 62.58% of the total population in Bhopal suffered from inhalational toxicity. The people who resided in areas close to the carbide factory were exposed to higher concentration of potentially lethal toxic gases.

127 Disaster Management in India

Department of relief and rehabilitation, Government of Madhya Pradesh

6.12.2 A large proportion of population who survived this tragedy developed morbidity of varying degree over the last 25 years. As an immediate response, the state government of Madhya Pradesh provided financial support to the affected families and an amount of `.12.80 crore was distributed as immediate relief. Food items were also distributed to the affected population and compensation was paid for livestock loss. An amount of ` 3.78 crore was spent to provide compensation to the families of a deceased. 6.12.3 During 1990 in the first five year action plan a sum of ` 258 Crore was sanctioned by the Central government and it got extended till 1999. This plan provided ` 150.35 crore for medical rehabilitation in addition to economic rehabilitation (` 21.18 crore), social rehabilitation (` 49.72 crore) and environmental rehabilitation (` 23.76 crore). The present action plan for Rehabilitation of Government of Madhya Pradesh is given in Table: 6.1 includes the following features:

Department of relief and rehabilitation, Government of Madhya Pradesh

128 Recovery Reconstruction and Rehabilitation

Table 6.1: Action Plan for Rehabilitation of Government of Madhya Pradesh Sl.No. Item Amount (in ` Crore) 1 Medical Rehabilitation 33.55 2 Social Rehabilitation 85.20 3 Economic Rehabilitation 104.00 4 Water Supply 50.00 Total 272.75 6.12.4 Committee of Group of Ministers A ‘Group of Ministers’ has been constituted by GOI under the chairmanship of Home Minister to take decisions on all issues related to Bhopal Gas tragedy vide note 47/1/7/93-CAB dated 26/05/2010. There are 10 members in the Group of Ministers. The ‘Group of Ministers’ have come out with the ` 982.75 crore work plan (75:25 sharing pattern) for Economic, Social, Medical and Environmental rehabilitation of victim of Bhopal Gas Tragedy. Central Government has sanctioned ` 272.75 crore to Madhya Pradesh Government. 6.13 Kutch Earthquake (2001) The Kutch earthquake of 26th January, 2001 was one of the worst natural disasters to strike in Gujarat. It posed enormous challenges because of its magnitude, intensity and geographical spread for rescue, relief and rehabilitation. 6.13.1 The devastation –a glimpse: Overall 7633 villages in 21 out of 25 districts of Gujarat were affected to varying degrees. The districts most affected were Kutch, Surendaranagar, Jamnagar, Rajkot, Patan and Ahmedabad. Almost 13, 805 human lives were lost, about 1,67,000 persons

Gujarat Earthquake 2001

129 Disaster Management in India

Kutch earthquake 2001 and reconstruction of house were injured and over a million houses were damaged and destroyed. About 10,000 small and medium industrial units went out of production, affecting income and employment. Inspite of the immediate sense of shock, confusion, helplessness and grief, the government and the community rose to the occasion and quickly responded to the event. Soon after, a holistic and comprehensive reconstruction and rehabilitation programme was put in place. A new organization, the Gujarat State Disaster Management Authority was established. The Government of Gujarat also announced the Reconstruction and Rehabilitation Policy (2001).

6.13.2 The Gujarat Earthquake Reconstruction Programme was designed to address the needs of the affected people comprehensively. It adopted a building back better approach, involved the community and encompassed a number of sectors such as housing physical infrastructure, social infrastructure (education and health), urban reconstruction, livelihood restoration, social rehabilitation and long term disaster risk reduction.

6.13.3 The reconstruction programme had the following objectives: (i) Promoting sustainable recovery in disaster affected areas, and (ii) Laying the foundation for sustainable disaster management capacity in Gujarat. The phase-wise focus of the programme is summarised as follows: (a) The short term focus of the reconstruction programme was to address the immediate needs such as temporary shelters before the onset of the monsoon, debris removal, repair of houses and public buildings and emergency repair of irrigation structures.

130 Recovery Reconstruction and Rehabilitation

(b) The medium term objectives of the programme emphasised the repair and reconstruction of houses, public infrastructure, and social infrastructure and initiating efforts towards disaster mitigation and reduction. (c) The long term objective of the reconstruction programme was further strengthening the capacity of government institutions and community towards disaster risk reduction (preparedness, response, mitigation and prevention) and implementation of risk transfer mechanism.

6.13.4 Some of the salient features of the Gujarat Reconstruction Programme are as follows:

(i) Owner Driven Reconstruction: The reconstruction of the houses was done by the owners themselves with technical assistance provided by the government. This involved minimum relocation and out of 215,255 houses that were reconstructed only 5720 houses were partially relocated. To provide technical guidance to the community and ensure that the newly built houses were hazard resistant, large number of engineers, architects and masons were trained and technical guidelines were developed. A third party audit mechanism was established to control quality.

(ii) Housing Insurance: The Housing Insurance Programme was incorporated as a compulsory component for all G-5 houses and optional for houses of other categories. The insurance covered 14 types of risks for 10 years and the premium was fixed at ` 349.10 for an insured sum of `1 lakh.

(iii) Urban reconstruction of all the four towns in Kutch ensured planning principles with improvement of basic services and urban environment.

(iv) A regulatory system for safe construction was strengthened and licensing of engineers and certification of masons were introduced.

(v) Mass awareness on disaster preparedness was undertaken to prepare the community to face similar future eventualities.

6.14 Tsunami (2004)

6.14.1 The Dec 26th 2004 Indian ocean tsunami caused extensive damage to the infrastructure including harbours, jetties, roads, bridges, power, telecom, hospitals, schools and other social sector buildings besides human loss of 9395 persons and 3,964 were missing after the disaster. The estimated loss in monetary terms including damage to property was reported at ` 11544.91 crore (Andhra Pradesh- ` 342.67 crore, Kerala- ` 2371.02 crore, Tamil Nadu- ` 4528.66 crore, Andman & Nicobar Islands ` 3836.56 and Puducherry – ` 466.00 crore). In terms of housing, 86,688 houses were damaged, with 53,192 vulnerable to damage. Approximately 12000 hectares of agricultural land was damaged and 3000 hectares of land was rendered unusable due to salinity in the soil. A total 47 Fishing Landing Centres (FLC) got damaged and approximately 28000 boats were damaged. The loss assessed by respective state government may be seen at Table 6.2.

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Tsunami in Indian Ocean

Table 6.2: Loss in Tsunami 2004, India Items damaged TN Kerala AP Puducherry A&NI Total Financial Loss 4528.66 2371.02 342.67 466.00 3836.56 11544.91 (` in crore) Houses (i) Damaged 64976 3867 481 7567 9797 86688 (ii) Vulnerable 40248 11000 - - - 51248 Agricultural 88451.72 2151 No damage 1145 8069 99816.72 land (ha) Boats (nos.) 2727 3989 11394 7892 2065 28067 Roads (km) 1548.32 686 No damage 108 350.05 2692.37 6.14.2 It is not possible to prevent a tsunami. However, in some tsunami-prone countries, earthquake engineering measures have been taken to reduce the damage caused on shore.

(i) Physical Measures: The State Governments and District Administration rose to the occasion in its search & rescue operation besides providing relief. The Central Government initiated relief operation by deploying 20,800 personnel of armed forces as well as Central Armed Police Forces in the affected States and UTs. It also send supports to Sri Lanka, Maldives and Indonesia. In all 881 relief camps were set-up and a total of 6,04,335 people were housed

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in these camps. About 12,735 tents were dispatched to the affected areas – mostly to A&N Islands. 64 special flights were operated between 27th Dec 2004 – 1st Jan 2005 to evacuate 6,318 stranded people including tourists in A&N Islands. In all 28,734 persons were rescued – 9950 in Kerala, 9284 in A&N Islands, and 9500 in TN including 1000 persons stranded at Vivekanand Memorial. 6.45 lakhs persons – Main Land (6.30 lakhs) and A&N Islands (0.15 lakhs) were moved to safer places.

(ii) Financial Measures: Government of India made immediate release of ` 700 crore for the Tsunami affected States and UTs. An amount of ` 450 crore was released as an immediate assistance from the National Calamity Contingency Fund (NCCF) to the States of Tamil Nadu (` 250 crore), Kerala (` 100 crore) and Andhra Pradesh (` 100 crore). In addition, an amount of ` 50 crore to Puducherry and ` 200 crore for Andaman & Nicobar Islands was also earmarked.

(iii) Rajiv Gandhi Rehabilitation Package: Government of India provided assistance to the Governments of Andhra Pradesh, Kerala, Tamil Nadu, and the Union Territories of Puducherry and Andaman & Nicobar Islands to implement the special package of ` 3644.05 crore named as “Rajiv Gandhi Rehabilitation Package for Tsunami affected areas” to provide assistance for immediate relief and response, revival of fishery and agriculture sectors, construction of temporary (intermediate) shelters and repair/restoration of infrastructure. The amount of ` 700 crore released immediately from NCCF became a part of this ‘Package’. The details of release are given as under in Table 6.3.

Tsunami Reconstruction, Nagapattinam, Tamil Nadu

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Table 6.3: Rajiv Gandhi Rehabilitation Package (` in crore) State / UT Amount allocated Amount Spent Amount of RGRP under RGRP which became part of TRP Tamil Nadu 2347.19 748.12 1101.02 Kerala 249.36 103.19 109.38 Andhra Pradesh 70.00 63.34 29.96 Puducherry 155.62 69.14 82.21 Andaman & Nicobar 821.88 838.58 454.05** Total 3644.05 1822.37 1776.62

(**) Increase in RGRP in A&NI is because of savings from relief funds utilized for reconstruction works. Out of the total outlay of ` 3644.05 crore under RGRP some of the components like Housing, Livelihood & Fisheries etc. worth of ` 1776.62 crore were subsequently merged in the “Tsunami Rehabilitation Programme” (TRP). 6.14.3 Long-Term Tsunami Reconstruction Programme (TRP): After the completion of rescue and relief phase, the Government of India approved TRP at an estimated cost of ` 9870.25 crore which was to be implemented during 2005-06 to 2008-09. The GoI approved the revised TRP package, at an estimated cost of ` 9822.10 crore on 10.1.2007 comprising the following components:- (i) ` 1776.62 crore under the Rajiv Gandhi Package. (ii) ` 3332.43 crore through External Agencies viz World Bank, ADB and IFAD. (iii) ` 4713.05 crore as Domestic Budgetary Support. Table 6.4 shows that status of rehabilitation measures taken up under TRP. The TRP includes reconstruction activities in five major sectors such as housing fisheries, agriculture and livelihoods, ports and jetties and roads and bridges, in addition to power, water and sewerage, social infrastructure and welfare, environmental and coastal protection and tourism. The prime objective of the Tsunami Rehabilitation Programme is to reconstruct damaged infrastructure with value addition and restore livelihood of the people. An amount of ` 4171.98 crore had been allocated for housing under TRP which is about 42.5% of the total outlay. The GoI while reviewing the progress of TRP on 11.2.2010 has further modified the outlay to` 9381.96 crore (` 6049.54 crore under ACA and ` 3332.42 crore under EAP). This includes an additional requirement of ` 108 crore for Puducherry and ` 138.30 crore for A&NI. 6.14.4. Status: The physical works are likely to be completed by December, 2011 except tourism works of Andaman & Nicobar Islands which is stated to be completed by March, 2012.

Table 6.4: Status of Rehabilitation (as on 30th June 2010) Initiatives taken up under TRP TN Kerala Andhra Puducherry A&NI Total

Houses completed (Nos.) Damaged 56466 3867 481 6032 9797 76643

Vulnerable 13408 6248 19836

134 Recovery Reconstruction and Rehabilitation

Initiatives taken up under TRP TN Kerala Andhra Puducherry A&NI Total

Agricultural land (ha) 88451.72 2151 No 1145 4891.72 96639.44 damage Boats (nos.) 2727 3989 11394 7692 2012 27774 Roads (km) 1385.53 686 No 100.72 306.65 2478.9 damage 6.15 Kosi Calamity (2008) 6.15.1 The Kosi (known as “Kaushiki” in Sanskrit) is one of the most ancient rivers of India. The river is notorious for its vagaries and known to change its bed very often. During the last two centuries, the river has been changing its course in the westerly directions and it has laterally moved nearly 70 miles. On 18.08.2008 the Kosi river started eroding the spurs on the eastern efflux bundh 12 km. up stream of the Birpur barrage in Supaul district and breached the embankment. After the breach, the entire river spilled out and started flowing along a new course running straight down south. The course of the river was approximately 15 to 20 km wide and 150 km long north to south. The entire country side within this 3000 sq. kms. was totally devastated by the rapid surging flow of the river along its new course. Houses, schools, roads, dispensaries were all flooded and swept away. A total of 35 blocks, 407 panchayats and 980 villages in five districts with a total population of 33, 89, 000 fell along the new course of the river. Totally, 217 people and 868 cattle were killed and 3,38,986 houses were partly or fully damaged due to the catastrophe. 6.15.2 Immediate Response: The affected areas had never experienced such a catastrophe and had not seen floods for the last 50 years, therefore they had inadequate arrangements to face the situation. The state administration deployed 1500 boats locally in addition to the 561 motor boats mobilised from NDRF, army, navy and other sources. About 12 helicopters carried out 314 sorties and air dropped about 1, 21, 892 packets of food, water and halogen tablets besides distribution of about 2, 39, 858 food packets by boats to the people in the affected areas. The state government carried out one of the largest evacuation operations of about 9, 93, 992 persons ever organised in the country. About 5000 civilian personnel, 3500 police men, 35

Source: Flood Management System, Water Resources Department Bihar

135 Disaster Management in India

columns of army, 4 columns of the navy, 850 personnel of NDRF, 1500 boats and 560 motor boats were deployed for the evacuation. 6.15.3 Mega Shelter Camps: The State Government set up 362 relief camps in the buildings of schools and colleges. At the peak of the disaster 4, 40,739 people were living in the camps. Self help groups were constituted to look after the preparation and distribution of meals. A special thrust was on women and newly born babies; clothes and utensils were given to each camp inmate as relief measures. Other features of the shelter are outlined below:

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6.15.4 Livestock: To cater to the affected livestock, 257 veterinary centres manned by 387 personnel were set up. As per the report 47,430 animals were kept in camps and 321630 animals were vaccinated.

Box 6. 2: Kosi Flood Reconstruction And Rehabilitation Programme Background: The state government has formulated Kosi Rehabilitation and Reconstruction Project with the purpose of reconstructing the houses, providing community facilities, complete restoration of physical infrastructure, livelihood support based on the policy of sustained economy and environment etc for the people affected by the calamity. The project is based on the success of the pilot Kosi Recovery and Reconstruction project supported by the UNDP in two villages through the Owner Driven Reconstruction Collaborative network of civil society organisations. Components: The World Bank aided project Kosi Rehabilitation and Reconstruction Project has the following major components: (i) Owner Driven Housing Reconstruction - Using an owner driven reconstruction model, about 1000,000 houses will be built with a brick and concrete plinth, bamboo superstructure and corrugated galvanized iron (CGI) sheeting roof. The cost per house will be ` 55,000 with a currently estimated cost of ` 2,300 for a toilet and ` 5,000) for solar powered lighting. (ii) Reconstruction of Roads and Bridges – Under this component, connectivity lost due to the Kosi flood would be restored by reconstruction of damaged roads and bridges/culverts, including construction of some new bridges. The project is expected to construct about 90 bridges and culverts on the State Highway and Major District Roads and reconstruct about 290 km of rural roads, which would benefit around 2.2 million people. New cross drainage structures will be provided where new streams have formed and where these were missing earlier. (iii) Strengthening Flood Management Capacity - This component would strengthen the overall flood forecasting and flood and sediment management capacity in Bihar by enhancing knowledge, understanding, and capacity of flood and sediment management. This will be achieved by implementing both structural and non-structural measures, mainly focusing on the Kosi River Basin. The component has three subcomponents: a. Knowledge management and capacity building; b. Flood forecasting and early warning; and c. Structural investments. (iv) Livelihood Restoration and Enhancement – The component is to build social and financial capital and expand the livelihood opportunities of the affected people of Madhepura, Supaul and Saharsa. This component will have four subcomponents: (i) Community Institution Development; (ii) Community Investment Fund; (iii) Technical Assistance Fund; and (iv) Project Management. (v) Improving Emergency Response Capacity – This component aims at making contingency funding available for civil works, consultant services and goods required to respond in case of future emergencies. (vi) Project Management and Implementation Support –This component is to support project implementation through the provision of necessary offices including equipment. Finance: Total Cost of the World bank aided project formulated by the Government is $220 million about ` 1,000 crores.

6.16 Leh Cloudburst (2010) 6.16.1 A rare phenomenon, a rainfall of 12.8mm during the intervening night of 5/6th August 2010 coupled with cloud burst resulted in flash floods and mud slides causing havoc and large scale loss of life and public infrastructure/private property particularly in Leh region. Besides the

137 Disaster Management in India

Damage by cloud Burst, 2010 local population large numbers of tourists both Indian and foreign nationals, as well as labourers from outside the region who had gone there for earning a livelihood got trapped to face the most tragic and difficult circumstances. 6.16.2 Response: More than 6000 personnel of Army, Air Force, Border Roads Organization, National Disaster Response Force and Indo Tibetan Border Police were deployed along with rescue equipment to assist the civil administration in relief operations. Large quantities of relief material

Temporary Shelters, 2010

138 Community Centre Community Centre at Leh, 2010 such as tents, blankets, tarpaulins, mattresses, food packets and bottled water were provided. Contributions from the charitable organisations and other sources were also sent. Apart from the medical teams available with army, CPMFs, state, etc. one medical team consisting of 08 Doctors and 04 Nurses along with 10 quintals of emergent surgical/medical consumables were deployed in the affected area from Delhi. Additional medical supplies and medical equipments were sent to the affected areas. A total of 55 civil aircrafts were operated and more than 8000 people were evacuated. The Air Force also carried out 226 sorties and airlifted 302 tonnes of relief material and equipments and 818 persons. Funds to the tune of ` 429.24 crore ($ 95 million) were available with the state government in their State Disaster Response Fund for undertaking immediate relief activities. The Prime Minister announced a rehabilitation package of ` 125 crore ($ 30 million). 6.16.3 Lesson learnt: The gap in the response to the remote hilly area and the disaster being of unprecedented requires strengthening of the National Emergent Reserve and placing it at similar vulnerable areas for prompt relief. Besides there is an urgent need to strengthen the communication system i.e. multi modal system and create an awareness among people about the cloud burst and its consequences.

139 Disaster Management in India

6.16.4 Rehabilitation: Details of the houses/community shelters constructed by the various agencies is given in Table 6.5.

Table 6.5: Shelter construction in Leh (As on 23-11-2010) Sl. Agency /Authority Total no. of houses to No. of houses No. of No. responsible be constructed constructed community shelters constructed 1. Prime Minister’s National 327 153 - Relief Fund

2. Hindustan Pre-Fab Ltd. 434 331 17

3. National Bamboo Mission 91 48 10 Authority

4. NGOs 44

6.17 Mayapuri Radiation Exposure Delhi (2010) 6.17.1 The National Radiation Regulatory Authority, Atomic Energy Regulatory Board (AERB) received a message in the afternoon of 7th April, 2010 from Indraprastha Apollo Hospital, New Delhi that one person, aged 32 years, the owner of a scrap shop in Mayapuri Industrial Area, New Delhi had been admitted on 4th April, 2010 with symptoms of radiation exposure.

Box 6.3: Recovery an Opportunity

Disaster can become a development opportunity if relief efforts do not merely restore the poor status quo ante, but rather put people on a path of sustainable development. The goal in the transition phase must be to avoid a ‘circularity of risk’. This is what can happen when houses built with valuable international assistance get washed away during floods, dams left unrepaired after an earthquake aggravate drought conditions, and procedural delays in receiving rehabilitation packages from government and donor agencies leave the poor more vulnerable to the next disaster. (Source: From Relief to Recovery: The Gujarat Experience: UNDP)

6.17.2 The Team of Atomic Energy Regulatory Board (AERB) visited the place immediately with radiation detection equipments and monitored the radiation levels at various positions near the scrap shop. They found that the particular shop as well as a couple of nearby shops had very high radiation fields. Next day, teams of Radiation Safety Experts from BARC, AERB & Narora Atomic Power Station were sent to Delhi with a wide range of radiation monitoring, detecting equipments and a lead flask to locate, identify, recover, safely secure and dispose radioactive sources.

6.17.3 The response team identified the radiation source as Cobalt-60, used mainly in industry for radiography and in teletherapy for cancer treatment. During the search operation, the team could locate, recover and secure eight sources of different intensities. These sources were placed in the lead shielded flask brought from Narora and sent for further examination and safe disposal. Subsequently the area was cleared for the public. A radiation survey of scrap metal shops in neighboring areas was carried out following the incident. It indicated elevated radiation levels in one more scrap shop about 500 m away from the ones where radiation sources were found

140 Recovery Reconstruction and Rehabilitation earlier. A joint team consisting of AERB and National Disaster Response Force (NDRF) recovered two more radioactive sources from this shop. Both the sources were safely transferred to a shielding flask and transported back to Narora. 6.17.4 As a follow up to this incident, four joint teams of BARC, AERB and NDRF were formed and the surroundings of all remaining 800 shops in the market were scanned when the shops were closed on 14th April, 2010. The entire area was found to be free of elevated radiation fields except at the entrance of the market where the soil over a small patch was slightly contaminated. The contaminated soil showed Cobalt-60 contamination but of very low order. Subsequently, the contaminated soil up to a depth of few centimetres was removed to bring down the radiation field. 6.17.5 Constitution of a Working Group: In the backdrop of the discovery of radiation sources from the scrap in Mayapuri in New Delhi and also to minimise the possibility of such recurrences in future, NDMA constituted a working group headed by Shri B. Bhattacharjee, Member, NDMA to spell out the roles and responsibilities of various agencies in dealing with Radiological Emergencies. The committee has submitted its report with the title “Working Group for Formulating mechanisms to detect, prevent and respond to radiological emergencies in India” to the Cabinet Secretariat. Further follow up on the recommendations of the committee is being done by the Cabinet Secretariat and NDMA. 6.18 Conclusion Recovery, early recovery, long-term recovery, lasting recovery, reconstruction and rehabilitation are critical phases of Disaster Management Cycle. They offer an opportunity to reduce risks from future hazards and the ‘Build back better’ approach followed in the recovery programmes after major recent disasters give us valuable lessons on how to approach this phase. It is anticipated that the experiences mentioned would help the stakeholders in planning effective, efficient and time bound action plan in the event of disasters.

141 Disaster Management in India

Capacity 7Development

142 7.1 An Overview Effective disaster management requires trained manpower to deal with complex situations effectively and speedily to reduce the impact of disaster on human life and property. It is necessary to continuously undertake measures to build capacity amongst those who are handling disaster prevention, mitigation, preparedness, response, reconstruction and also creating awareness amongst people. Therefore, capacity building needs to encompass all resources available within a community, society and organisation to reduce the level of risk or the effects of a disaster.

7.2 Definition UNDP describes ‘capacity building’ as the creation of an enabling environment with appropriate policy and legal frameworks, institutional development, including community participation (of women in particular), human resource development and strengthening of managerial systems. It adds that capacity building is a long-term, continuing process, in which all stakeholders participate (ministries, local authorities, non-governmental organisations and water user association’s professional associations, academics and others). Capacity may include physical, institutional, social or economic means as well as skilled personal or collective attributes such as leadership and management. Capacity may also be described as capability. 7.2.1 Capacity building31 is much more than training and includes the following: x Human resource development, the process of equipping individuals with the understanding, skills and access to information, knowledge and training that enables them to perform effectively, x Organisational development, the elaboration of management structures, processes and procedures, not only within organisations but also the management of relationships between the different organisations and sectors (public, private and community), x Institutional and legal framework development, making legal and regulatory changes to enable organisations, institutions and agencies at all levels and in all sectors to enhance their capacities. 7.2.2 Following are considered as vital components of the capacity development: (i) Training: It is a learning process that involves the acquisition of knowledge, sharpening of skills, concepts, rules, or change of attitude and behavior to enhance the performance of individuals associated with different departments and institutions. (ii) Education: Amidst changes of the past decades, school education sector, the most discussed topic of national importance, is planning for more contextual, practical and application oriented curriculum for students at different levels of schooling. (iii) Research: Research is an organised and systematic way of finding answers to questions. Systematic because there are certain things in the research process which are always done in order to get most accurate result. (iv) Awareness: Awareness is generally defined as knowledge created through interaction between an agent and its environment. It cannot be simply referred to as “knowing what is going on.” This concept of awareness involves state of knowledge as well as dynamic processes of perception and action.

143 Disaster Management in India

7.3 Approach 7.3.1 The National Policy on Disaster Management (NPDM) describes its approach to capacity development. A strategic approach to capacity development can be addressed effectively only with the active and enthusiastic participation of the stakeholders. This process comprises of awareness generation, education, training, research and development (R&D) etc. It further addresses to put in place an appropriate institutional framework, management systems and allocation of resources for efficient prevention and handling of disasters. The approach to capacity development includes- t
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MFWFMT 7.3.2 NPDM has further elaborated on national priorities, institutional capacity development, training of communities, professional technical education, DM education in schools, training of artisans, training of other groups and licensing and certification. Besides NPDM guidelines issued by NDMA also lay emphasis on capacity development. 7.3.3 Capacity development in India: A realistic National Capacity Development Programme, commensurate with the intensity and extent of the hazard in India needs to be evolved and implemented, keeping in view the available resources. This programme of resource enhancement should encompass all institutions,organizations and individuals that have a role in any part of the disaster management cycle. 7.3.4 Capacity gaps in disaster management : To mitigate the impact of disasters, there is a need to work collectively through multidimensional channels combining the efforts, resources and expertise of the government, non- governmental organisations and civil societies. Managing such incidents holistically is a highly specialised and skilled job which cannot be approached in an ad hoc manner. Disaster Management comprises of multi sectoral issues and accordingly calls for all sectors that play pivotal role in managing exigencies to develop their human resource capacity accordingly. There seems to exist a wide gap in the knowledge, skill, and attitude of the disaster managers for efficiently managing emergency situations particularly at local and state level where according to one study made by NIDM, Capacity-Risk ratio is remarkably low. To bridge this gap, it is important to have specific capacity development plans and strategies. 7.3.5 Target group: In the field of capacity development, priority is to be given to training of DM officials, functionaries, trainers and elected representatives and community representatives. Due importance requires to be given to DM training and orientation of professionals like doctors, engineers and architects apart from those engaged in response and relief. DM training further

144 Capacity Development requires to be included in curricula of educational institutions at all levels of schooling and should include practical instructions as well. 7.3.6 Realizing the importance of Capacity Development of stakeholders in Disaster Management, NIDM has been given the task of preparing National Human Resource and Capacity Development plan, which is at the advanced stage of its formulation. The first draft has been prepared and presented before the MHA. NIDM is finalizing the plan after holding the discussion with MHA on its first draft.

Institutions for Capacity Development 7.4 National Institute of Disaster Management (NIDM) 7.4.1 Background: In the backdrop of the International Decade for Natural Disaster Reduction (IDNDR), a National Centre for Disaster Management was established at IIPA in 1995. The Centre was upgraded and designated as the National Institute of Disaster Management (NIDM) on 16th October 2003 and it has now achieved the status of a statutory organisation under the National Disaster Management Act, 2005. Section 42 of the Disaster Management Act, 2005 entrusts the institute with various responsibilities, namely to develop training modules, undertake research and documentation in disaster management, organise training programmes, undertake and organise study courses, conferences, lectures and seminars to promote and institutionalise disaster management, undertake and provide for publication of journals, research papers and books. Located centrally at the Indraprastha Estate on the Mahatma Gandhi Road, within the campus of the IIPA, the institute is equipped with state-of-the-art facilities of training and research on disaster management. It has training and conference halls, well stocked library, GIS laboratory, computer centre, and video conferencing facility. The institute also provides boarding and lodging facilities for participants during its programmes.

7.4.2 Training Programmes of NIDM: The different formats in which training is imparted by NIDM include:

(i) Face-to-face training: NIDM conducts both in campus and off-campus training programmes. In-campus programmes are conducted in the premises of the Institute while the off-campus programmes are conducted mostly in state capitals, at the premises of the Administrative Training Institutes. It conducts as many as 92 training programmes on diversified themes of disaster management, with many new programmes added continually. The participants of these programmes are usually middle and senior level government officers nominated by the state governments and concerned ministries and departments of the Government of India. The programmes constitute class room lectures and presentations, field visits, group exercises, panel discussions etc. It does not charge any course fees. Boarding and lodging arrangements are also made free of charge. During the year 2010-11, the institute has conducted 84 training programmes, which have been attended by 2142 participants.

(ii) Web- based training: In collaboration with World Bank Institute, Washington, the Institute conducts on-line training programmes on basic and specialised subjects on disaster management. The courses are open to all interested persons with a token charge of ` 1500 for the basic course of one and half months and ` 1000 for specialised courses of one month duration to cover the cost of reading materials, postage etc. Every participant is expected to take part in on-line discussions. The successful candidates are awarded certificates

145 Disaster Management in India

signed jointly by the NIDM and WBI. In 2010-11, three online training programmes on Comprehensive Disaster Risk Management Framework and four specialised online programmes on Community Based Disaster Risk Management, Climate Change and Disaster Management, Risk Sensitive Land Use Planning and Safe Cities have been organized. A total of over 438 participants attended these online courses. The Institute has also started the process of customisation of eight modules to Indian context.

(iii) Satellite based training: The Institute has collaborated with Administrative Training Institutes, Bhopal and Mysore to conduct satellite based training programmes through the ISRO community centres that have satellite based one-way video and two-way audio communication system. More than hundred centres join the programme simultaneously in which thousands of grassroots level functionaries take part. The Institute is extending the programmes in number of other states where similar facilities have been seen set up. (iv) Self study courses: The Institute is in the process of launching web based training courses on various themes such as basics of disaster management, earthquake, flood, cyclone, disaster management for civil defence volunteers, public health workers, school children and community preparedness, which anyone from anywhere at any time can log on. The aim of such courses is to create interest and raise the level of awareness of people regarding disaster management and in some cases supplement the existing class room based training programmes. (v) India Disaster Management Congress: NIDM has taken the lead in organizing the India Disaster Management Congress (IDMC) on the pattern of India Science Congress to bring together scientists, scholars and practitioners from diverse disciplines on the same platform. The first such Congress was held in November 2006 which was inaugurated by Hon’ble Prime Minister of India. The Institute organized the Second India Disaster Management Congress in November 2009. The congress had twenty six thematic sessions around twelve different thematic clusters where over 300 technical papers were presented. Hon’ble Shri APJ Abdul Kalam, Former President of India graced the occasion and delivered the valedictory address. (vi) Capacity Building Programme for Engineers and Architects in Earthquake Risk Management: Ministry of Home Affairs initiated this twin programmes for capacity building of engineers (National Programme for Capacity Building of Engineers in Earthquake Risk Management) and architects (National Programme for Capacity Building of Architects in Earthquake Risk Management) at the cost of `12.36 and .`4.51 crore respectively in earthquake risk management. The programme which started in 2004-05 was implemented till 2008 by the MHA and has subsequently been transferred to the NIDM for implementation with effect from 01.4.2008.

7.5 National Disaster Management Authority 7.5.1 NDMA undertakes several initiatives in the process of capacity development. Few of them are illustrated as follows: 7.5.2 Mock Exercises: NDMA undertakes mock exercises in vulnerable districts and industries on various types of natural and man-made disasters to help the state governments and district administration in reviewing the adequacy and efficacy of the state and district level Disaster Management Plans and to identify gaps in resources and systems. So far NDMA has

146 Capacity Development conducted nearly 211 mock exercises including 90 similar exercises in schools. During the Commonwealth Games, similar exercises were under taken through coordinated conferences, table top exercises and the mock exercises on both natural and man-made disasters at different competition and practice venues and at accommodation areas of players and accompanying officials. Altogether, 55 such exercises were conducted at different venues of the Commonwealth Games including the Games Village. 7.5.3 Mock Exercises on School Safety: Mock exercises in schools are conducted to empower the schools to face the disasters squarely before the specialist response is affected. Details are given in the Table 7.1.

Table 7.1: Mock Exercises conducted by NDMA from 1.4.2009 to 31.3.2010 Sl. Disaster State/s States where No. Mock exercises conducted 1. Earthquake Uttarakhand, Arunachal Pradesh, 11 Meghalaya, Delhi, Himachal Pradesh, Mizoram, Nagaland, A&N Islands, J&K 2. Cyclone Gujarat 01 3. Floods Tamil Nadu, Bihar, Chhattisgarh, 04 Maharashtra 4. Urban Fire Haryana, Karnataka, J&K and Sikkim 04 5. Chemical (Industrial) Karnataka, Tamil Nadu, Goa, Pubjab, 09 Maharashtra, Madhya Pradesh, Gujarat 6. Terrorist related Delhi 05 Total 39 7.5.4 Table Top Exercise: Table Top Exercises are also carried out to elicit the responses of the participants in simulated scenarios. These scenarios cover the entire gamut of the disaster management cycle. 7.5.5 Training of Panchayati Raj Institutions(PRIs): Capacity Building of PRIs is extremely important as they are the local authorities at the grassroot levels. For the PRIs in addition to their scheme based capacity building funds, the NDMA has undertaken a capacity building project in partnership with IGNOU and eleven states, the details of which are given in the Table 7.2.

Table: 7.2: Capacity building of PRIs: Capacity Building Project (in Partnership with IGNOU) and States

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147 Disaster Management in India

Awareness Campaign through cycle rally at Patna

7.5.6 Awareness Campaigns: NDMA has launched a number of public awareness campaigns through electronic and print media. The focus is on building an appropriate environment for DM and creating a high level of impact on the target audience. (a) Audio Visual Campaigns: The publicity campaigns were run through radio and video spots on AIR, Doordarshan, private TV channels like general entertainment channels, new channels and regional channels, FM radio channels through DAVP and National Film Development Corporation.

(b) Earthquake Awareness Campaign: Four Videos in 35mm and four audio spots were produced for conducting an earthquake awareness campaign across the states/ UTs prone to earthquakes.

(c) Cyclone Awareness Campaign: Three videos in 35 mm and three audio spots were produced in Hindi and regional languages for conducting cyclone awareness campaigns across the States/ UTs prone to cyclones.

(d) Flood Awareness Campaign: Four videos in 35 mm and four audio spots were produced for conducting flood awareness (Awareness programme through cycle rally - Patna) campaigns across the states/ UTs prone to floods.

(e) Information, Education and Communication (IEC) Activities: Financial assistance of `.2.33 crores has been released to 19 states/ UTs for awareness generation IEC activities like making posters, leaflets, hoardings, wall paintings, video/ audio spots, etc.

148 Capacity Development

7.6 Disaster Management Centres in the States 7.6.1 The Government of India through NIDM supports a four member faculty and two support staff besides the programme expenses of the Disaster Management Centres of the Administrative Training Institutes or other nodal institutes nominated by the states under a Central Sector Non-Plan Scheme (2007-12). Thirty one such centres (Table 7.3) have been set up throughout the country, one in each state and two each in Assam and U.P. The training programmes of the centres and NIDM are developed through a consultative process at the Annual Training Conference attended by the Relief Commissioners of the states, Director Generals of the ATIs, and representatives of the concerned nodal ministries and departments of the Government of India. Every centre has to conduct a minimum of 25 training programmes and train at least 490 participants annually. Together the centres train more than 35000 cutting edge functionaries of the government. The training calendar of NIDM may be visited at website ‘http://nidm.gov.in’.

Table 7.3: Disaster Management Centers in the State

Sl. No. State Location Name of the Institute Acronyms 1. Andhra Pradesh Hyderabad AMR-Andhra Pradesh Academy of AMR-APARD Rural Development 2. Arunachal Itanagar Administrative Training Institute ATI Pradesh 3. Assam Guwahati Assam Administrative Staff College AASC 4. Assam Tezpur Tezpur University, Tezpur, NAPAAM NAPAAM 5. Bihar Patna Bihar Institute of Public BIPA&RD Administration & Rural Development 6. Chhattisgarh Raipur Chhattisgarh State Institute CSIAA Academy of Administration 7. Delhi New Delhi Directorate of Training, Union DOT Territory Civil Services 8. Goa St. Inze, Panji Fire Institute FI 9. Gujarat Gandhinagar Gujarat Institute of Disaster GIDM Management 10. Haryana Chandigarh Haryana Institute of Public HIPA Administration 11. Himachal Shimla Himachal Pradesh Institute of Public HPIPA Pradesh Administration 12. Jammu & Srinagar J&K Institute of Management, J&K IMPARD Kashmir Public Administration and Rural Development 13. Jharkhand Ranchi Shri Krishna Institute of Public SKIPA Administration 14. Karnataka Mysore Administrative Training Institute ATI 15. Kerala Thiruvanan- Institute of Land Management ILM thapuram

149 Disaster Management in India

Sl. No. State Location Name of the Institute Acronyms 16. Madhya Pradesh Bhopal Disaster Management Institute DMI 17. Maharashtra Pune Yashwantrao Chavan Academy of YASHADA Development Administration 18. Manipur Imphal State Academy of Training SAT

19. Meghalaya Shillong Meghalaya State Administration ATI Training Institute 20. Mizoram Aizawal Administrative Training Institute ATI 21. Nagaland Kohima Administrative Training Institute ATI 22. Orrisa Bhubaneswar Gopabandhu Academy of GAA Administration 23. Punjab Chandigarh Mahatma Gandhi State Inst. of MGSIPA Public Administration 24. Rajasthan Jaipur Harish Chandra Mathur Rajasthan HCMRIPA Institute of Public Administration 25. Sikkim Gangtok G.B. Pant Institute of Himalayan GBPIHED Environment & Development 26. Tamil Nadu Chennai Anna Institute of Management AIM 27. Tripura Agartala State Institute of Public SIPARD Administration & Rural Development 28. Uttar Pradesh Lucknow Uttar Pradesh Academy of UPAAM Administration & Management *29. Uttar Pradesh Lucknow Deen Dayal Upadhyaya State DDUSIRD Institute of Rural Development 30. Uttarakhand Nanital Uttarakhand Academy of UAOA Administration 31. West Bengal Kolkata Administrative Training Institute ATI

* Approved as Additional Centre in U.P. 7.6.2 Additional DM Centres in the States: Additional centres in 11 states namely, Andhra Pradesh, Bihar, Gujarat, Karnataka, Madhya Pradesh, Maharashtra, Rajasthan, Tamil Nadu, Uttar Pradesh, West Bengal and Orissa have been approved in principle by the Government of India. These centres are in the process of being set up in consultation with the concerned states, except that of UP, which has already been set-up

7.6.3 Centres of Excellence: The Government of India has further approved setting up of six centres of excellence on specific areas of disaster management (Table 7.4). These centres will conduct research; develop resources and network with related institutions at national, regional and international levels.

150 Capacity Development

Table 7.4: Centres of Excellence Name of Institution Specific Types of Disaster YASHADA, Pune Drought DMI, Bhopal Industrial & Chemical Disasters AASC, Guwahati Earthquake ATI, Kolkata Flood MCR HRDI, Hyderabad Cyclone UAOA, Nainital Landslide

7.7 Training of the National Disaster Response Force (NDRF) 7.7.1 There are four training institutes of Central Para Military Forces (CPMFs), (Table 7.5) which impart training to NDRF battalions, namely:

Table 7.5: Location of Training centres Institute Acronyms CAPF Place National Industrial Security Academy NISA CISF Hyderabad Basic Training Centre BTC ITBP Bhanu, Chandigarh Central Training College -II CTC-II CRPF Coimbatore BSF Insitute of Disaster Response BIDR BIDR Tekanpur, Gwalior Besides these institutions, eight battalion level training institutes in NDRF for imparting training to personnel of NDRF are functional. 7.7.2 The NDRF personnel are also trained by other specialised institutes in the country. The details of courses being conducted for the NDRF personnel are given in Table 7.6.

Table 7.6: Details of the Courses for NDRF Basic courses Advanced courses x Basic training course for 1st x Practical training on radiological emergency, responders of NDRF Bn, x ToT on radiological emergency, x NBC basic course, x management of industrial and chemical disaster, x MFR/ CSSR, flood rescue, x radiation safety officer course and radiological and nuclear x deep diving, emergency course, x basic mountaineering search x radiological and nuclear emergency, and rescue, x chemical and biological emergencies course, x Heli- slithering. x urban search and rescue, x advance course in CSSR, x ToT refresher in MFR/CSSR, x ToT in MFR and CSSR, x earthquake disaster response, x management of dead bodies, x capsule course on NBC emergencies, x TOT in NBC emergency, MOT in NBC, MOT in MFR/CSSR,

151 Disaster Management in India

(NDRF in search and Rescue operation in Miyagi and Onagawa - Japan Earthquake and Tsunami (March 2011)

Basic courses Advanced courses x MOT in chemical and biological emergencies, auxiliary fire fighting, basic life support, industrial disaster management, x incident management and command system, training programme on DM for NDRF commanders, x rock climbing and slithering, refresher deep diving, training of doctors in DM.

7.7.3 The status of the training of the NDRF personnel till 2009-10 is given in the following Table 7.7. Table 7.7: Status of Training

Training Training Partners No. CBRN College of Military Engineering, Pune DRDE, Gwalior 3,456 Singapore Civil Defence Academy Heli-Borne Training Indian Air Force Base at Nahan, Guwahati, Agra & 4,200 Bangalore Natural Disasters INSARAG (UNOCHA)Trg. Standard USAID: PEER 6,021 Programme Under INDO-SWISS Collaboration for Training (INSWIT) , Swiss Development Corporation (SDC) Safety Solutions Inc., Ocala, Florida (USA) Water Rescue Life Saving Society, Kolkata Sea Explorer Institute, 5,120 Kolkata Foreign Trained Various Courses 61 7.7.4 Programme for Enhancement of Emergency Response (PEER): Trainers of Central Industrial Security Force (CISF) and Indo-Tibetan Border Police (ITBP) are trained under the PEER programme. Now they are engaged in conducting courses at their respective training centers i.e. National Industrial Security Academy (NISA) of CISF at Hyderabad and Basic Training Centre (BTC) of ITBP at Bhanu (Haryana), which have been designated as national level training institutes for search and rescue training. In addition, the personnel of BSF and CRPF have also been trained under the PEER programme at NISA, Hyderabad, BTC, Bhanu and BIDR, Tekanpur. Gradually all the four constituents/ components of Central Armed Police Forces of NDRF have been duly involved for getting their personnel on deputation to NDRF trained under this programme.

152 Capacity Development

The programme is expected to facilitate parallel preparations by all the battalions of NDRF reorganised for natural disasters. The last PEER Country Planning meet was held at NDMA, New Delhi from 1-2 February 2010. PEER Regional Planning meeting was recently held at Manila from 29th to 1st April 2011

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7.7.7 Trainer Developed by Instructors, trained under PEER: Table 7.8 shows the PEER training of instructors who in turn have developed trainer

Table 7.8: Trainer developed by PEER instructors

Organisation Institute Location Trainers Developed BSF BSF Institute Of Disaster Response (BIDR) Tekanpur 213 CRPF Central Training College (CTC) Coimbatore 86

CISF National Industrial Security Academy (NISA) Hyderabad 376 ITBP National Institute for Training in Search, Bhanu 71 rescue & Disaster Response (NITSRDR)

153 Disaster Management in India

7.7.8 MFR & CSSR Responders Developed by Instructors Trained under PEER: Similary these instructors have been used for developing the responder. The outcome may be seen in the Table 7.9.

Table 7.9: Responders developed by PEER Instructor Sl. Organisation Institute Location Responders No. Developed 1 BSF BSF Institute Of Disaster Tekanpur 1386 Response (BIDR) 2 CRPF Central Training College (CTC) Coimbatore 1288 3 CISF National Industrial Security Hyderabad 2244 Academy (NISA) 4 ITBP National Institute for Training Bhanu 2297 in Search, Rescue & Disaster Response (NITSRDR)

7.7.9 Capacity Development of community by NDRF: The state-wise list of community capacity building and public awareness conducted by NDRF Bns (2006-10) are given in the Table 7.10.

Table 7.10: State-wise list of Community Capacity Development & Public Awareness

S.No. State Number of Beneficiaries 1. Gujarat 147,018 2. North-Eastern states 93,349 3. Maharashtra 82,735 4. Rajasthan 79,524 5. Bihar 74,095 6. Karnataka 31,809 7. Haryana 31,349 8. West Bengal 21,086 9. Kerala 18,363 10. Tamil Nadu 16,110 11. Uttar Pradesh 14,490 12. Uttarakhand 9,946 13. Madhya Pradesh 9,550 14. Himachal Pradesh 7,440 15. Punjab 7,060 16. Andhra Pradesh 6,345 17. Other states 5,412 Total 655,681 7.8 Incident Response System (IRS) 7.8.1 The incident response system is a standardised method of managing disasters, which is flexible and adaptable to suit any scale of natural as well as man made emergency/incidents.

154 Capacity Development

It has common terminology, organisational flexibility, specialised training, unity and chain of command and well rehearsed coordination mechanism. The system provides specialist incident management teams with an incident commander trained in different aspects of incident management such as logistic, operations, planning, safety, media management etc. 7.8.2 A revised roadmap for training and institutionalisation of IRS in India has been prepared and is under consideration of MHA. The proposed roadmap envisages to increase the strength National Core Group to include all concerned national level training institutes, RTI’s and ATI’s; expansion of trained State Master Trainers, organising training programmes for Core Group Trainers, State Master Trainers, training of members of national, state and district headquarters and IC teams. The total period for implementation of the revised road map has been estimated at 30 months with a financial outlay of` .24.495 crore. The amount for its implementation is proposed to be met from the Capacity Building Grant of the states and Non-Plan fund of MHA. 7.9 National Civil Defence College (NCDC), Nagpur 7.9.1 The first Disaster Management Training Institution of the country was founded on 29th April 1957 at Nagpur as the Central Emergency Relief Training Institute (CERTI) to support the Emergency Relief Organization of the Government of India. This institute organised advanced and specialist training for revenue officials responsible for Disaster Relief Operations against any natural or manmade disaster. CERTI was renamed as National Civil Defence College on 1st April 1968.

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Table 7.11: Courses conducted by NCDC

Category Courses Civil Defence Programmes Civil Defence Instructors (Foundation)

General Training of Trainers (TOT) in Civil Defence Disaster Management for Senior Executives from Government & Industries TOT in Disaster Psycho-social Intervention (TDPSI) Communication for CD Trainers Unexploded Bombs and Explosive Safety Auxiliary Fire Fighting Incident Management & Command System Response Flood and Cyclone Disaster Response Earthquake Disaster Response Advance Search and Response Collapse Structures Search & Location Emergency Response to Rail Transport Accidents Chemical Disaster First Responder Biological Incident First Responders Emergency Communication Programmes Emergency Operations Centre (EOC) Management Amateur Radio Communication for Responders Training of Trainers (TOT) in Radiological & Nuclear Emergencies Mitigation Disaster Management Programmes Civil Defence & Disaster Management Industrial Disaster Management Medical Emergency Medical Response Programmes Basic Life Support

7.9.4 The college has been upgraded to one of the main Centres for Disaster Management Training and a nodal center for Radiological, Nuclear, Biological and Chemical Emergency Response Training. It has also been recognised as a premier training establishment in Chemical Disaster Response Training by the Ministry of Environment & Forests. Its up-gradation into ‘institution of excellence’ at a national level to train a professional cadre of trainers for Disaster Response & Recovery Management is in the final stages of completion and will involve a total cost of ` 18.95 crore. 7.9.5 The activity wise progress of Centrally sponsored schemes of Revamping of Civil Defence as on March 2011 is given in the Box 7.1.

156 Emergency Medical Response training demonstrated by the NCDC

Box 7.1: Status of Programme of Civil Defence as on March 2011

Activities Details of activities Present progress

Strengthening of Upgrading of Physical Renovation/ upgradadtion of physical Physical Infrastructures Infrastructure -`.60 infrastructure and the process for procurement of existing State Training lakh, Procurement of of equipments commenced in 9 states viz Institutes in 17 States equipments -` 35 lakh Assam, Delhi, Gujarat, Himachal Pradesh, and Transport - `11 lakh. Jammu & Kashmir, Rajasthan, Karnataka, Maharashtra & West Bengal.

Creation of New Creation of Physical Physical possesion of land taken in Bihar, Training Institutes in 10 Infrastructure - `146 Chattisgarh and Kerala, land earamarked in States lakh, Procurement of Arunachal Pradesh, land being identified equipments - ` 35 lakh in Jharkhand, Orissa, Tamil Nadu and and Transport - ` 11 lakh Uttarakhand, no action taken by Chandigarh.

Creation of 100 Multi- Creation of Physical States have identified the location for physical Hazardous Districts Infrastructure - `14 infrastructures in 100 MHDs. (MHD). List of MHD is in lakh, Procurement of Chapter No. 4 (Table 4.4) equipments - `20 lakh +987 and Transport - `.11 lakh

Pilot project for To train 214 Master Training of 214 master trainers completed and involving Civil Defence Trainers at NCDC, Nagpur 4018 CD volunteers have so far been trained. in internal security and 4280 Trainers in matters in 40 towns different states.

157 Disaster Management in India

Activities Details of activities Present progress

Training Camps/ ` 5.5 crore 44 camps in Maharashtra. Goa and Assam Exercise and 50% to be borne by the were conducted and Firm commitment has demonstrations States/ UTs been received from 06 state namely Assam (` 8 lakh), Gujarat (` 12 lakh), Karnataka (` 4 lakh), Orissa (` 4 lakh), Punjab (` 12 lakh) and Rajasthan (` 8 lakh) for contribution of matching fund on basis of 50 :50 between the Central Government and State Governments.

Re-orinetation of ` 4 crore to be released Activity being initiated in 2011-12. Civil Defence from a to states with a view to town-centric to district spread the CD activities specific approach (100 over the entire district. district to be covered)

Publicity and Awareness ` 3 crore to be partly A video spot (30 seconds) on CD activities utilized by States/ UTs was aired on various TV channels during 16th and DGCD December 2010 to 25th December 2010 and the process making of documentary film on Civil Defence in progress.

7.10 National Fire Service College (NFSC), Nagpur 7.10.1 The National Fire Service College was established in 1956 as a sub-ordinate establishment of Ministry of Home Affairs with the aim of providing training to the Fire Officers of the country in advanced techniques of fire fighting and rescue, and creating uniformity in the Fire Service organisations and their management across the country. The college initially offered only one course and subsequently additional courses were added to meet the growing need of training in the fire services of the country. The college has so far trained 15197 Fire Officers in the country. 7.10.2 Courses: Following courses are conducted by the college: t
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158 Capacity Development

and impart training in the theory and practice of the fire prevention and modern fire protection methods. 7.10.5 Upgradation of NFSC: A scheme under non-plan head for Upgradation of National Fire Service College Nagpur has been launched in June 2010 for a period of three years at an outlay of ` 205 crore. The objective is to enhance the capacity of the National Fire Service College to meet the requirements of specialised professional training in all aspects, namely, fire prevention, fire protection, fire fighting, rescue, specialised emergency response in the event of disaster and also for research documentation and consultancy requirements in the field. The main components of the scheme are as follows: (i) Construction of technical and non-technical buildings at a cost of ` 146.80 crore to be carried out by CPWD, (ii) Procurement of equipments including training aids and laboratory items at an estimated cost of ` 58.20 crore.

Efforts of other Ministries in Capacity Development Programme on DM:

7.11 Ministry of Human Resource Development: 7.11.1 As an effort to mainstream disaster management concerns into the education curricula, NDMA has taken the initiative in conjunction with the Ministry of Human Resource Development, to ensure that DM curriculum forms part of the course curriculum in undergraduate science and humanities courses and medical, engineering, architecture courses besides in school education. It will also focus on the training of teachers and faculties in disaster management. Sarva Siksha Abhiyaan (SSA) will also include the concerns of disaster resilience in their adult literacy curriculum.

7.11.2 The topics on Disaster Management aim to: i. Acquaint students about various disasters that India is vulnerable to and the hazard maps to enable them to visualize these vulnerabilities, ii. Introduce a few key concepts in disaster management in simple terms, to orient them to the words used in media discussions, analysis etc. when a disaster strikes, iii. Introduce the concept of being prepared for disaster through simple do-s and don’ts that school children can imbibe and spread to families and community, iv. Develop interest in the subject through interactive activities in the classroom so that the student seeks more information on disaster.

7.11.3 Syllabus of different classes from VIIIth to XIth The Central Board of Secondary Education has taken the initiative of including disaster management topics as frontline curriculum in the subject of social science with effect from 2003-2004 in class VIIIth and extended it to class IXth and Xth in subsequent years. It was extended to class XI in 2005-2006 in the subjects of sociology and geography.

DM syllabus are being introduced in universities. Pune ,Madras, IGNOU, and Indraprastha and many other Universities has already started such courses and it is in the process of getting introduced in Symbiosis, Pune.

159 Disaster Management in India

Mock drills in the schools by NDRF

7.11.4 NDMA has undertaken to get such courses introduced in undergraduate course. A module has been provided to UGC similarly for introducing such courses in technical institutes. Modules have been provided to AICTE in course of Engineering and architect. ICAR has introduced a DM module for its courses in Agriculture and Vetenary

7.11.5 Organisation of training programme: With the financial and technical support from Ministry of Home Affairs and the UNDP under the GOI_UNDP DRM programme (2002-2009), the Central Board of Secondary Education was able to successfully complete two master trainers programmes across the country during the year 2003-2006.These training programme helped the teachers to successfully transect the subject in the class room. Demonstrations were carried out on first aid, search and rescue, evacuation etc by the health department, fire services etc. An impact study on disaster management textbooks was conducted by CBSE in July, 2006 with the purpose of updating the textual material by incorporating recent developments and obtaining feedback from the teacher and students.,. Feedback questionnaires were sent to 180 schools all over the country. The information received from schools was analyzed with the purpose of reviewing and updating the existing text books.

7.12 Ministry of Panchayati Raj & Rural Development NDMA has advised the Ministry of Panchayati Raj and Rural Development to address the concerns of disaster management in the training of representatives of the Panchayati Raj Institutions and local bodies. The Ministry of Panchayati Raj has also issued a letter N-11012/35/2007-P&J Vol III

160 Capacity Development dated 1.9.2010 in this regard. Accordingly, all the ongoing and future projects of this ministry should incorporate disaster resilient features into them. States efforts’ towards training of Panchayati Raj functionaries and district level officials has been initiated in 11 states in association with IGNOU. Altogether 4,125 government functionaries and 12,375 PRI/ ULB representatives are targeted to be trained in disaster management under this project.

7.13 Conclusions 7.13.1 Disaster management requires trained human resources to deal with complex situation effectively to mitigate the impact of disaster on human life and property. Capacity Development is an integral process of knowledge and skill building. Capacity may include physical, institutional, social or economic means as well as skilled personal or collective attributes such as leadership and management. Capacity Development is much more then training and it includes human resource development, equipping individual with understanding, skills and access to information, knowledge and training that enables him to perform effectively. 7.13.2 National Policy on Disaster Management (NPDM) describes its approach to capacity development. NPDM further elaborates on National priorities, institutional capacity development, training communities, professional technical education, DM education in school, training to artisan and training to other group. Capacity development has focused on training of the DM officials, functionaries, trainers, elected representatives and community representatives. Various institutions like, NDMA, NIDM, NCDC, NFSC and ministries have developed the capacity development programme for disaster management.

7.13.3 The details included in this chapter are only illustrative and not exhaustive. Capacity Development strategies are now being mainstreamed in most of the ministries and Government department at National, State and District level to equip the DM personal and community with advance knowledge and skill in disaster management. It is expected that once the National Human Resource and Capacity Development Plan is adopted, it will help in mainstreaming the capacity development in different activities of the ministries of Government of India concerned, state government and other stakeholders.

161 Disaster Management in India

Financial Arrangements 8.1 Financing the Relief Expenditure Financial assistance in the wake of natural calamities is provided in accordance with the schemes of relief funds. These schemes are based on the recommendations of the successive Finance Commissions. While the budgetary provision of these relief funds is dealt with by Ministry of Finance, the processing of request of the state government for these funds is done by the Ministry of Home Affairs (DM Division). The present scheme of State Disaster Response Fund (SDRF) and National Disaster Response Fund (NDRF) are based on the recommendations of the 13th Finance Commission, operative from 1st April 2010 to 31st March 2015. 8.2 Recommendation of 13th Finance Commission On the recommendation of the 13th Finance commission, the Minister of Finance GOI has allocated funds for strengthening disaster management institutions, capacity building and response mechanisms. Allocation made by Finance Commission towards erstwhile calamity Relief Fund may be seen from Fig. 8.1. Figure 8.1: Allocation made by Finance Commission towards erstwhile calamity Relief Fund

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The Central assistance in the form of Margin Money Scheme (MMS) has continued in operation from 2nd to 8th Finance Commission. Later MMS got revised for funding relief expenditure from CRF and NCCF with the objectives: (i) the assistance extended to the State in accordance with their need, (ii) relief to the victim is quick, (iii) state to have greater functioning avenues, (iv) state to be given more accessibility. 8.2.1 State Disaster Response Fund: Section 48 (1) of Disaster Management Act 2005 provides for constitution of State Disaster Response Fund (SDRF) by the state Governments. The Ministry of Home Affairs has issued the guidelines to the state for operation of SDRF. Allocations to the State Relief Funds have been made based on the recommendations of the successive Finance Commissions. While allocating the funds to various states for a period of five years the factors considered include the expenditure incurred by the state government on relief operations

163 Disaster Management in India during the last about 10 years, vulnerability of the state to natural disasters and economic status of the state. Currently, as per the recommendations of the 13th Finance Commission, the GoI has approved an allocation of ` 33580.93 crore in the State Disaster Relief Fund to all the states, comprising of ` 25847.93 crore as central share and ` 7733.00 crore as state share. The scheme of SDRF provides for release of the central share SDRF in two equal installments in the months of June and December. A statement showing the state- wise and year wise allocation to the SDRF for the period 2010-15 is given in the Table 8.1.

Table 8.1: State-wise Allocation of State Disaster Response Fund (` in crore)

Sl. No States 2010-11 2011-12 2012-13 2013-14 2014-15 Total 1 Andhra Pradesh 508.84 534.28 560.99 589.04 618.49 2811.64 2 Arunachal Pradesh 36.74 38.58 40.51 42.54 44.67 203.04 3 Assam 263.77 276.96 290.81 305.35 320.62 1457.51 4 Bihar 334.49 351.21 368.77 387.21 406.57 1848.25 5 Chhattisgarh 151.32 158.89 166.83 175.17 183.93 836.14 6 Goa 2.96 3.11 3.27 3.43 3.6 16.37 7 Gujarat 502.12 527.23 553.59 581.27 610.33 2774.54 8 Haryana 192.9 202.55 212.68 223.31 234.48 1065.92 9 Himachal Pradesh 130.76 137.3 144.17 151.38 158.95 722.56 10 Jammu & Kashmir 172.46 181.08 190.13 199.64 209.62 952.93 11 Jharkhand 259.45 272.42 286.04 300.34 315.36 1433.61 12 Karnataka 160.96 169.01 177.46 186.33 195.65 889.41 13 Kerala 131.08 137.63 144.51 151.74 159.33 724.29 14 Madhya Pradesh 392.75 412.39 433.01 454.66 477.39 2170.2 15 Maharashtra 442.69464.82 488.06 512.46 538.08 2446.11 16 Manipur 7.22 7.58 7.96 8.36 8.78 39.9 17 Meghalaya 14.65 15.38 16.15 16.96 17.81 80.95 18 Mizoram 8.55 8.98 9.43 9.9 10.4 47.26 19 Nagaland 4.97 5.22 5.48 5.75 6.04 27.46 20 Orissa 391.58 411.16 431.72 453.31 475.98 2163.75 21 Punjab 222.92 234.07 245.77 258.06 270.96 1231.78 22 Rajasthan 600.66 630.69 662.22 695.33 730.1 3319 23 Sikkim 22.75 23.89 25.08 26.33 27.65 125.7 24 Tamil Nadu 293.52 308.2 323.61 339.79 356.78 1621.9 25 Tripura 19.31 20.28 21.29 22.35 23.47 106.7 26 Uttar Pradesh 385.39 404.66 424.89 446.13 468.44 2129.51 27 Uttarakhand 117.66 123.54 129.72 136.21 143.02 650.15 28 West Bengal 304.83 320.07 336.07 352.87 370.51 1684.35 Total 6077.3 6381.18 6700.22 7035.22 7387.01 33580.93 Source: Annex.11.1, Thirteenth Finance Commission Report, pp 450, Ministry of Finance, GoI

8.3. National Disaster Response Fund (NDRF) 8.3.1 Section 46(1) of DM Act 2005 provides for constitution of NDRF for meeting any threatening disaster management situation or disaster. Accordingly, DM Division issued notification for the constitution of NDRF on 28th September 2010. The Finance Ministry has also issued guidelines to the state for operation of NDRF.

164 Financial Arrangements

8.3.2 Sourcing of National Disaster Response Fund (NDRF): The Government of India raised this Fund by levying the “National Calamity Contingency Duty” on imported petrol and products, crude oil, motor cars, imported multi utility vehicles, two wheelers, mobile phones, pan masala and certain specific tobacco products. The collection for year 2009-10 was ` 3160.00 crore and was expected to be around ` 3900.00 crore in the financial year 2010-2011. For the year 2011-12, the estimate is ` 4525.00 crores. 8.3.3 Additional Financial Assistance: Over and above the provisions of the SDRF, funding is provided from the NDRF in the wake of calamities of severe nature. On receipt of the memorandum from the affected states, an Inter Ministerial Central Team comprising of representatives of the central ministries/ departments is constituted and its report after examination by the Inter Ministerial Group (IMG) headed by Home Secretary is placed before the High Level Committee (HLC) for their consideration and approval of funds from NDRF. The composition of HLC is given in the Policy and Guideline, Chapter-2, which at present are headed by Finance Minister with Home Minister, Minister for Agriculture and Vice Chairman of Planning Commission as its member on the committee. 8.4 Monitoring of Expenditure from Relief Funds The Ministry of Home Affairs oversees the operations of SDRF and monitors its compliance with these guidelines. A format for monitoring the relief expenditure in accordance with the extant items and norms of assistance has been prescribed. A web based computerized tracking system has also been developed for monitoring the relief expenditure. The Accountant General of the State maintains the accounts of the SDRF. The Comptroller & Auditor General of India audits SDRF every year. 8.5 Disaster Response Reserve In the context of disaster relief, the 13th Finance Commission has observed that procurement of relief materials on short notice is often associated with premium in pricing and could adversely impact quality. The Commission also felt that a national inventory of equipment and material should be maintained for providing immediate relief. It is advisable to keep an inventory of items such as life saving equipment and tents etc. with the NDRF. The Commission has accordingly recommended an initial grant of `.250.00 crores in the form of a revolving fund to be provided to the NDRF for this purpose. Whenever these items are used for responding to a calamity, the cost (or rent for those items that can be reused) should be booked to the overall cost of relief operations incurred by the state government and the inventory replenished on a regular basis. A proposal to constitute this fund along with guidelines for its operations is under consideration of the government. 8.6 Capacity Building Grant On the recommendation of the 13th Finance Commission, ` 525.00 crore has been allocated to the states for taking up activities for building capacity in the administrative machinery. The state wise allocation for the period 2010-15 is given in Table No- 8.2. The Ministry of Finance has issued the guidelines for the utilization of the fund. The guidelines provide for preparation of an action plan for the entire period of 2010-15 as well as action plans for each financial year. These plans would inter alia include items for training and capacity building of stakeholders and functionaries in states, preparation of disaster management plans based on hazard, risk and vulnerability analysis and setting up and strengthening of emergency operations centres in states.

165 Disaster Management in India

Table 8.2: State-wise Grant Allocation for Capacity Building for Disaster Response (` in crore)

Sl. States 2010-11 2011-12 2012-13 2013-14 2014-15 Total No 1 Andhra Pradesh 6.00 6.00 6.00 6.00 6.00 30.00 2 Arunachal Pradesh 1.00 1.00 1.00 1.00 1.00 5.00 3 Assam 5.00 5.00 5.00 5.00 5.00 25.00 4 Bihar 5.00 5.00 5.00 5.00 5.00 25.00 5 Chhattisgarh 4.00 4.00 4.00 4.00 4.00 20.00 6 Goa 1.00 1.00 1.00 1.00 1.00 5.00 7 Gujarat 6.00 6.00 6.00 6.00 6.00 30.00 8 Haryana 5.00 5.00 5.00 5.00 5.00 25.00 9 Himachal Pradesh 4.00 4.00 4.00 4.00 4.00 20.00 10 Jammu & Kashmir 4.00 4.00 4.00 4.00 4.00 20.00 11 Jharkhand 5.00 5.00 5.00 5.00 5.00 25.00 12 Karnataka 4.00 4.00 4.00 4.00 4.00 20.00 13 Kerala 4.00 4.00 4.00 4.00 4.00 20.00 14 Madhya Pradesh 5.00 5.00 5.00 5.00 5.00 25.00 15 Maharashtra 5.00 5.00 5.00 5.00 5.00 25.00 16 Manipur 1.00 1.00 1.00 1.00 1.00 5.00 17 Meghalaya 1.00 1.00 1.00 1.00 1.00 5.00 18 Mizoram 1.00 1.00 1.00 1.00 1.00 5.00 19 Nagaland 1.00 1.00 1.00 1.00 1.00 5.00 20 Orissa 5.00 5.00 5.00 5.00 5.00 25.00 21 Punjab 5.00 5.00 5.00 5.00 5.00 25.00 22 Rajasthan 6.00 6.00 6.00 6.00 6.00 30.00 23 Sikkim 1.00 1.00 1.00 1.00 1.00 5.00 24 Tamil Nadu 5.00 5.00 5.00 5.00 5.00 25.00 25 Tripura 1.00 1.00 1.00 1.00 1.00 5.00 26 Uttar Pradesh 5.00 5.00 5.00 5.00 5.00 25.00 27 Uttarakhand 4.00 4.00 4.00 4.00 4.00 20.00 28 West Bengal 5.00 5.00 5.00 5.00 5.00 25.00 Total 105.00 105.00 105.00 105.00 105.00 525.00

Source: Annex 11.3 of Thirteenth Finance Commission Report Vol. II, Ministry of Finance, GoI 8.7 Revamping of Fire Services The 13th Finance Commission has recommended, a grant of ` 87519 crore to the Local Bodies including municipalities, a portion of which is available for revamping of fire services within their respective jurisdictions of municipalities. These bodies could provide financial support to the State Fire Services Department towards this objective. The states will be eligible to draw their

166 Financial Arrangements share from the grant only if they comply with nine conditions. One of these conditions is “All municipal corporations with a population of more than 1 million (2001 census) must put in place fire hazard response and mitigation plan for their respective areas.” An additional fund of ` 472 crore has been allocated to seven states. The distribution of funds is given as follows:

Table 8.3: State-wise Grant Allocation for Revamping of Fire Services (` in Crore) Sl. No. States Allocation of Funds 1 Andhra Pradesh 17.00 2 Haryana 100.00 3 Mizoram 20.00 4 Orissa 150.00 5 Tripura 15.00 6 Uttar Pradesh 20.00 7 West Bengal 150.00 Total 472.00

Source: Thirteenth Finance Commission Report, Ministry of Finance, GoI Guidelines: The Ministry of Finance has issued guidelines to the state governments vide its letter no. 12(2) FCD/2010 dated 23.09.2010 for utilization of the grant recommended by the 13th Finance Commission for rural and urban local bodies. 8.8 Environmental Relief Fund 8.8.1 In exercise of the powers conferred by Section 7(A) of the Public Liability Insurance Act, 1991, the Central Government has established the Environment Relief Fund Scheme on 4th November, 2008. The United India Insurance Company Ltd. (UIICL) is the “Fund Manager” of the ERF Scheme for a period of five years starting from the date of notification. UIICL has opened the Environment Relief Fund account with State Bank of Travancore, Chennai. As per the information available till February 2011 the amount in ERF account was about ` 322 crore (as on 31.03.2010). Funds in the ERF account is to be placed in fixed deposits. The interest earned from such investments is reinvested on a quarterly basis. The amount from all insurance companies is transferred to the ERF account on the last working day of every month.

Box 8.1: Public Liability Insurance Act, 1991 Relief to victim to Chemical Disasters The Public Liability Insurance Act was notified to provide immediate relief to the persons affected by accidents occurring while handling of hazardous substances, on a “no fault basis”. Salient Features of the PLI Act and the associated Rules are as follows: What is covered? x Death and injury to persons (other than workmen) x Damage to private property. What is not covered? x Damage to natural resources, (as it is difficult to quantify such damages) x Damage to government property x Relief to workmen; as workmen are covered under the Workmen’s Compensation Act 1923.

167 Disaster Management in India

Owner’s Responsibility: x It is mandatory for industries involved in operations or processes of hazardous substances in quantities notified under the Act to take Public Liability Insurance cover for immediate relief to victims or damage to property, on a scale prescribed in the Schedule to the Act. x Notification dated 24.03.1992 issued under clause (d) of the Section 2 of the Act lists 179 explosive, toxic and highly reactive chemicals along with their quantities and defines flammable substances, which are within the scope of the Act. x Those affected are free to approach the Courts of Law for compensation higher than the prescribed amount. x Every owner to renew insurance policy before the expiry of the period of validity so as to ensure that the policy is in force during the period of handling of hazardous substances. x Amount of insurance policy taken out by an owner shall not be less than the amount of paid up capital and may not exceed fifty crore rupees. x Owner to pay an amount equal to the amount of premium of insurance policy to insurer for onward transfer to an Environment Relief Fund (ERF). The insurer is to remit this amount further to ERF. x Owners exempted under section 4(3) of the Act to create Public Liability Insurance Fund with State bank of India or with any other nationalized bank for the purpose of meeting liability arising out of any claim awarded. No such exemptions have been granted so far by the government. Who can claim? x A person (other than workmen), who has sustained the injury x Owner of property to which damage has been caused x Legal representative of the deceased; in case of death. Extent of Liability: x Maximum aggregate liability of the insurer to pay relief under an award to several claimants; ƒ(On any one accident) –` 5 crore. ƒ(On more than one accident; Any one year)- `15 crores, in aggregate. x Insurer’s liability not to exceed sum insured under insurance policy. x If an award exceeds the amount payable under the insurance policy; it is to be met from the Environmental Relief Fund (ERF). x If an award exceeds the amount of insurance policy and the amount of ERF; the owner to pay shortfall. Responsibility of District Collector and Agencies for Enforcement: x The Collector may make an award determining the amount of relief which according to him is justified. x The Collector has the powers of the Civil Court for the purpose of holding enquiry, etc. x The central government has delegated its powers to issue direction to state governments and has authorized certain authorities/ officers for the purpose of checking enforcement. Time Frame: x Application for relief is to be made within five years of the occurrence of the accident. x A claim for relief is to be disposed of as expeditiously as possible, preferably within three months of receipt of application. x The amount of award is to be deposited within 30 days from the date of its announcement to the District Collector by insurer/owner. Penalties: x Whoever fails to comply with any direction issued under this Act or contravenes any of the provisions, is punishable for imprisonment of a term not less than one and half years, which can be extended up to six years or with a fine which shall not be less than Rupees One lakh or both. x If any owner fails to comply with directions/order or obstructs discharge of duties/functions of prescribed authority under the Act, he/she is punishable with imprisonment, which may extend up to three months or with a fine of maximum ten thousand rupees, or with both.

168 Financial Arrangements

8.8.2 Immediate Relief as per the Schedule of PLI Act, 1991 The scales of relief vide the Act is outlined as follows: (a) For fatal accident: ` 25,000/-; in addition to medical expenses maximum up to `12,500/- t
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Table 8.4: State-wise Allocations of Grants in Aid (` in lakh) Sl. No. States Centre Allocation State Government Contribution 1 Andhra Pradesh 837.00 209.25 2 Arunachal Pradesh 372.00 37.20 3 Assam 437.00 43.70 4 Bihar 703.00 175.75 5 Chhattisgarh 979.00 244.75 6 Goa 38.00 9.50 7 Gujarat 1250.00 312.5 8 Haryana 361.00 90.25 9 Himachal Pradesh 403.00 100.75 10 Jammu & Kashmir 266.00 66.50 11 Jharkhand 342.00 85.50 12 Karnataka 513.00 128.25 13 Kerala 266.00 66.50 14 Madhya Pradesh 2355.00 588.75 15 Maharashtra 665.00 166.25 16 Manipur 471.00 47.14 17 Meghalaya 483.00 48.30 18 Mizoram 327.00 32.70 19 Nagaland 552.00 55.20

169 Disaster Management in India

Sl. No. States Centre Allocation State Government Contribution 20 Orissa 970.00 242.50 21 Punjab 323.00 80.75 22 Rajasthan 1708.00 427.00 23 Sikkim 151.00 15.10 24 Tamil Nadu 1045.00 261.25 25 Tripura 76.00 7.60 26 Uttar Pradesh 1330.00 332.50 27 Uttarakhand 247.00 61.75 28 West Bengal 342.00 85.50 8.9.2.Revamping of Civil Defence Setup: The Government of India has launched a Centrally Sponsored Scheme in April 2009 with an outlay of `100 crore during the 11th Five Year Plan for revamping of Civil Defence setup in the country (2009-2012). The state-wise allocations of funds for conducting the above stated activities are given in Table 8.5.

Table 8.5: State-wise Allocations of Grants in Aid for revamping of civil defence (` in lakh)

Sl. No. States/UTs Centre Allocation State Contribution 1 Andaman & Nicobar Islands 199.50 2.00 2 Andhra Pradesh 238.20 4.00 3 Arunachal Pradesh 195.50 0 4 Assam 556.20 16.00 5 Bihar 410.50 5.00 6 Chandigarh 202.50 2.75 7 Chhattisgarh 206.50 2.50 8 Delhi 270.20 17.50 9 Goa 108.00 3.50 10 Gujarat 742.20 27.50 11 Haryana 390.20 10.00 12 Himachal Pradesh 163.20 2.00 13 Jammu & Kashmir 792.20 15.00 14 Jharkhand 308.00 4.25 15 Karnataka 154.20 5.00 16 Kerala 195.50 0 17 Madhya Pradesh 143.20 3.50 18 Maharashtra 423.20 14.00 19 Manipur 7.00 2.00 20 Meghalaya 126.20 3.00

170 Financial Arrangements

Sl. No. States/UTs Centre Allocation State Contribution 21 Nagaland 8.00 4.00 22 NCDC, Nagpur 7.20 0 23 Orissa 467.00 9.00 24 Punjab 728.20 25.00 25 Rajasthan 325.20 22.50 26 Sikkim 114.20 2.00 27 Tamil Nadu 196.50 0 28 Tripura 114.20 2.00 29 Uttar Pradesh 10540 40.00 30 Uttarakhand 205.50 2.00 31 West Bengal 730.20 29.00

8.10. Non-Plan Schemes The scheme for Financial Assistance to Administrative Training Institutes (ATIs) and other Training Institutes in states/UTs for the operation of Disaster Management Centres was approved in 2007 to be implemented during period 2007-2012.

Table 8.6: Year-wise Allocations of Grants in Aid (` in lakh) Financial Year Financial Assistance 2007-08 100.00 2008-09 400.00 2009-10 600.00 2010-11 650.00 2011-12 750.00 Total 2500.00 8.11. Externally Aided Schemes Besides the fund which are available through pln and non-plan schemes, efforts have also been made by the centre to mobilize the resources from external funding agencies for vulnerabilities assessment, capacity development, Institutional strengthening of response mechanism and mitigation measures etc. In the past, the Government has supported the State for reconstruction and rehabilitation of Earthquake and Tsunami affected people for their rehabilitation through aid from Word Bank and other such external funding agencies. 8.11.1 UNDP - GOI Disaster Risk Reduction Programme: A programme with external aid form United Nations Development Program (UNDP) known as GOI- UNPD is being implemented by NDMA with an outlay of USD 12.6 million (approximately ` 63 crore) and by MHA with an outlay of USD 7.4 million (` 37 crore) for the period of 2009-2012. The Joint Secretary, Ministry of Home Affairs is the National Programme Director for URR component and Joint Secretary, NDMA is the National Programme Director for DRR component. The programme is being implemented in all the states, as per Table 8.7.

171 Disaster Management in India

Table 8.7: State-wise Allocations of Grants in Aid (` in lakh)

Sl. No States Allocation for DRR Allocation for URR 1 Andhra Pradesh 150 100 2 Arunachal Pradesh 150 75 3 Assam 150 100 4 Bihar 150 50 5 Chhattisgarh 150 50 6 Delhi 150 * 7 Goa 150 * 8 Gujarat 150 50 9 Haryana 150 50 10 Himachal Pradesh 150 50 11 Jammu & Kashmir 150 100 12 Jharkhand 150 75 13 Karnataka 150 25 14 Kerala 150 150 15 Madhya Pradesh 150 25 16 Maharashtra 150 125 17 Manipur 150 50 18 Meghalaya 150 50 19 Mizoram 150 125 20 Nagaland 150 50 21 Orissa 150 100 22 Punjab 150 50 23 Rajasthan 150 50 24 Sikkim 150 50 25 Tamil Nadu 150 50 26 Tripura 150 100 27 Uttar Pradesh 150 225 28 Uttarakhand 150 100 29 West Bengal 150 100

8.11.2 GoI-USAID Disaster Management Support Project: The Government of India has signed a Project Grant Agreement with U.S. Agency for International Development (USAID) for implementation of the Disaster Management Support (DMS) Project. The agreement was signed in 2003. The period of the agreement has been extended up to 2015. Financial Support: The total outlay of the project is USD 4.715 million (comprising of USD 420,000 for training studies, USD 500,000 for equipments and USD 3.795 million for technical assistance) and USD 5.0 million to integrate Disaster Risk Reduction and Climate Change.

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8.11.3 National Cyclone Risk Mitigation Project: The Government of India has approved a National Cyclone Risk Mitigation Project (NCRMP), to be implemented in cyclone prone coastal states/UTs with external aid from the World Bank during the period 2011 to 2015. The allocation of funds activities wise and state wise is given as under in Table 8.8.

Table 8.8: Major Activities under NCRMP (` in crore) (i) Community mobilisation and training 72.75 (ii) Cyclone Risk Mitigation Infrastructure (construction of cyclone shelters, roads/missing 1164 links and construction/repair of saline embankments etc.) (iii) Technical assistance for capacity building on Disaster Risk Management (risk 29.1 assessment, damage and need assessment) (iv) Implementation assistance (operational cost, technical assistance cost and IEC 95.06 material etc.) (v) Others 135.8 The state-wise allocation of the funds is given as follows.

Table 8.9: State-wise Allocations of Grants in Aid for NCRMP (` in Crore) Sl. No. States Centre Allocation State Contribution 1 Andhra Pradesh 626.87 165.13 2 Orissa 520.93 132.85

8.12. Items and Norms of Assistance for Relief from NDRF and SDRF The Ministry of Home Affairs has prescribed items and norms of expenditure for relief operations. These items and norms of assistance from relief funds are comprehensively reviewed after the receipt of the award of the successive Finance Commissions. These norms are revised based on report of the expert group constituted by MHA which consults all the state governments and concerned central ministries/ departments. The present Items and Norms of assistance for relief may be visited www.mha.nic.in. 8.13 Conclusion While the post disaster relief and reconstruction is resource intensive, the Government has taken care to ensure that there are established financial mechanisms available both at the state and central level to address the resource requirements for such eventualities. The present scheme of State Disaster Response Fund (SDRF) and National Disaster Response Fund (NDRF) are based on the recommendation of 13th finance commission operated from 1st April 2010 to 31st March 2015. For disasters needing central support over and above the SDRF, the processing of the request of the state government for support from the Government of India is done by Ministry of Home Affairs (DM Division) while the budgetary provisions for the relief funds is dealt with by the Ministry of Finance. It is to be noted that the funds have also been allocated for strengthening of Disaster Management Institutions, Capacity Development of stakeholder’s, prevention & mitigation and the response mechanism. Efforts are also underway to ensure that the mitigation and prevention of disaster are also given adequate importance by utilizing these funds so that the impact of the disasters is minimized.

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International Cooperation

174 9.1 Overview India has played an important role in global initiatives on disaster management. With multi dimensional initiatives and expertise, India is taking a leading role in strengthening regional cooperation among South Asian countries for reducing disasters. Further, India has hosted the SAARC Disaster Management Centre in New Delhi with a clear mandate for enhancing regional cooperation. India is a signatory to the Hyogo Framework of Action and is committed to achieving the goals set under it through systematic and sustained efforts under the five priority action areas mentioned in the framework. The succeeding paragraphs give a brief account of international and regional organisations working in the disaster management along with India’s participation. 9.2 Hyogo Framework of Action 9.2.1 Representatives from 168 countries participated in the global conference on Disaster Risk Reduction in January 2005 in Kobe, Japan. The Hyogo Framework of Action (HFA) 2005-2015 was adopted to work globally towards sustainable reduction of disaster losses in lives and in the social, economic and environmental assets of communities and countries. The framework set three strategic goals and five priority action areas given as under:-

9.2.2 Three Strategic Goals: Followings are the goals as agreed to under the HFA- (i) The more effective integration of disaster risk reduction into sustainable development policies, planning and programming at all levels, with a special emphasis on disaster prevention, mitigation, preparedness and vulnerability reduction. (ii) The development and strengthening of institutions, mechanisms and capacities at all levels in particular at the community level that can systematically contribute to building resilience to hazards. (iii) The systematic incorporation of risk reduction approaches into the design and implementation of emergency preparedness, response and recovery programmes in the reconstruction of the affected communities.

9.2.3 Five Priority Action Areas: Under the HFA the following priority areas have been identified for the countries to concentrate in their efforts for making the countries disaster resilent. (i) Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation, (ii) Identify, assess and monitor disaster risks and enhance early warning, (iii) Use knowledge, innovation and education to build a culture of safety and resilience at all levels, (iv) Reduce the underlying risk factors, (v) Strengthen disaster preparedness for effective response at all levels. 9.2.4 Key Activities: Following key activities are envisaged under this framework

‡ Promote socio-economic development practices, ‡ Land-use planning and other technical measures,

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‡ Strengthening of institutional and technical capacities, ‡ Review and implement preparedness and contingency plans, ‡ Promote voluntarism and community participation, ‡ Creation of provision of emergency funds, ‡ Dialogue, coordination and exchange of information between disaster managers and development sectors. 9.2.5 India is one of the participating countries and works closely with the UN-ISDR to implement the Priority Areas of HFA for DRR. There is a Biennial Monitoring Framework developed by UN- ISDR and a National Progress Report submitted accordingly with UN-ISDR. To implement the framework’s activities, a Working Group has been constituted under the Chairmanship of Joint Secretary (DM), MHA. The group comprises representatives from Ministries of Rural Development, Panchayati Raj, Urban Development, Health and Family Welfare, Environment and Forests, Women and Child Development, Earth Sciences, Science and Technology and also from Planning Commission, NIDM and NDMA. 9.2.6 The responsibilities of the concerned ministry, agency and department to implement key activities as resolved in HFA are given in Box. 9.1.

Box 9.1: Ministries designated for HFA initiatives Priority Action - 1 Ensure that disaster risk reduction Ministry of Panchayati Raj, NIDM for human is a national and a local priority with a strong resources, Planning Commission for financial institutional basis for implementation. resources, DM Division of MHA. Priority Action 2: Identify, assess and monitor National Remote Sensing Agency, Central Water disaster risks and enhance early warning. Commission, India Meteorological Department, Geological Survey of India, DM Division of MHA. Priority Action 3: Knowledge, innovation and NIDM,DM Division of MHA, CBSE, NCERT, other education to build a culture of safety and resilience research organizations, NDMA, Ministry of Health, at all levels. HRD, and Priority Action 4:Reduce the underlying risk factors Ministry of Environment and Forest, Rural Development, Science and Technology, Health and Family Welfare, Urban Development, Planning Commission, DM Division of MHA, NIDM and NDMA. Priority Action 5: Strengthen disaster preparedness DM Division of MHA. for effective response at all levels.

9.3 Agencies of United Nations involved in Disaster Management There are various UN organizations engaged in the field of disaster management. Many of such organisation have direct linkages with UN’s mainstream body, where as other’s are evolved and are developed from the region of Asia, which have been most vulnerable to earthquake and cyclone. India has been actively involved in their setting up besides being members on the basis of its full time membership. A brief overview of such organizations has been presented in the following paras:

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9.4 United Nations International Strategy for Disaster Reduction (UNISDR) 9.4.1 At the end of the International Decade for Natural Disaster Reduction in July 1999, the International Programme Forum adopted the Geneva Mandate on Disaster Reduction, together with the strategy document, “The Forum recommended that in international cooperative framework for disaster reduction be maintained and strengthened. 9.4.2 In December 1999, General Assembly Resolution 54/219 created the UNISDR, as a successor of the secretariat of the International Decade for Natural Disaster Reduction, in 2001. Assembly resolution 56/195 mandated the secretariat to serve as the focal point in the United Nations System for the coordination of disaster reduction and to ensure synergies among the disaster reduction activities of the United Nations Systems and regional organizations and activities in socio-economic and humanitarian field 9.4.3 In 2005, the assembly, through resolution 60/195, endorsed the” Hyogo Declaration” and “Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and communities to Disaster” adopted by the world conference on Disaster Reduction, held in Kobe, Hyogo, Japan. The Hyogo Framework for Action has tasked the ISDR Secretariat with supporting the implementation for the strategic objectives identified therein. 9.4.4 Mission: In order to build the resilience of nations and communities to disasters through the implementation of the HFA , the UNISDR strives to catalyze, facilitate and mobilise the commitment and resources of national, regional and international stakeholders of the ISDR system. 9.4.5 The mission of UNISDR is to be an effective coordinator and guide all its ISDR partners, globally and regionally, to: x Mobilise political and financial commitments to disaster risk reduction and Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters (HFA); x Develop and sustain a robust, multi stake-holder system; x Provide relevant knowledge and guidance. 9.4.6 Functions and Responsibilities: The International Strategy for Disaster Reduction (ISDR) was adopted by United Nations Member States in 2000 and is owned by local, national, regional and international organisations. UNISDR is led by an Assistant Secretary-General for Disaster Risk Reduction and overseen by the Under-Secretary-General for Humanitarian Affairs, who also serves as the Chair for the wider ISDR system of partnerships. The mandate of UNISDR is to act as the focal point in the United Nations system for the coordination of disaster reduction and to ensure that disaster risk reduction becomes integral part to sound and equitable development, environmental protection and humanitarian action. 9.4.7 ISDR mechanisms: The various mechanisms have been developed to achieve the mission which are enumerated as follows: x The biennial Global Platform for Disaster Risk Reduction (GFDRR) acts as the main global forum for continued and concerted emphasis on disaster reduction. Open to all states and the ISDR stakeholders, it primarily assesses the progress made in the implementation of the HFA, enhances awareness of disaster risk reduction, share experiences and learn from good practices, also identify remaining gaps and necessary actions to accelerate national and local implementation;

177 Disaster Management in India x It acts as Regional platforms for disaster risk reduction, including ministerial meetings, led by regional inter-governmental organisations. x As an Inter-Agency Group it acts as a venue for ISDR system joint work programming among the participating organisations (currently FAO, IFRC, ILO, OCHA, UNDP, UNEP, UNESCO, UNICEF, WFP, WHO, WMO and the World Bank). Thematic platforms led by UN specialised agencies or technical institutions provide knowledge products and help to report on developments (for instance early warning, recovery, education, risk identification) etc. x The Under-Secretary-General for Humanitarian Affairs also convenes a Management Oversight Board with his peers (from OCHA; UNDP representing UNDG; the World Bank; WMO; UNEP; and IFRC). This Board supports the Chair in providing UN system-wide leadership and high- level advocacy for disaster risk reduction. x Several stakeholder groups and networks associated with ISDR – among them include a Scientific Technical Committee, Global NGO Network for DRR, Gender-and-Disasters, media groupings, an emerging Parliamentarian Network and member state, which participate actively in ISDR, are called upon in GA and HFA resolution to establish multi stakeholder national platform for disaster risk reduction to facilitate coordination across sector. 9.5. United Nation Disaster Management Team (UNDMT) The UNDMT in India is a team comprising of UN agencies such as FAO (Food and Agriculture Organization), ILO (International Labour Organization), UNDP (United Nations Development Programme), UNESCO (United Nations Educational, Scientific and Cultural Organization), UNFPA (United Nations Population Fund), UNHCR (United Nations High Commission for Refugees), UNICEF (United Nations Children’s Fund), WFP (World Food Programme) and WHO (World Health Organization).

9.5.1 The primary purpose of the UNDMT in India is x To ensure a prompt, effective and concerted country-level support to a governmental response in the event of a disaster, at the central, state and sub-state levels, x To coordinate UN assistance to the government with respect to long term recovery, disaster mitigation and preparedness, x To coordinate all disaster-related activities, technical advice and material assistance provided by UN agencies, as well as to take steps for optimal utilisation of resources by UN agencies.

9.5.2 UNDMT works very closely with the nodal ministries of the member agencies and provides support as per the established procedures. UNDMT joined the Asian Development Bank and World Bank to do an assessment of the reconstruction requirements after the tsunami in 2004 and Kashmir Earthquake in 2005. Based on the joint assessment of the damages in the tsunami affected states, UN formulated “Tsunami Recovery Programme” to support the tsunami affected states in their recovery and reconstruction programmes. UNDMT and NDMA have constituted a working group to undertake some pilot joint initiatives on various aspects of DM.

9.6 United Nations Disaster Assessment and Coordination (UNDAC) 9.6.1 The United Nations Disaster Assessment and Coordination (UNDAC) team is a stand-by team of disaster management professionals which are nominated and funded by member

178 International Cooperation governments, OCHA, UNDP and operational humanitarian United Nations Agencies such as World Food Programme (WFP), United Nations Children’s Fund (UNICEF) and World Health Organization (WHO). UNDAC is designed to assist the United Nations and governments of a disaster-affected country in meeting international needs for early and qualified information during the first phase of a sudden-onset of emergency as well as in the coordination of incoming international relief at the national level and/or at the site of the emergency. 9.6.2 The UNDAC Team is a United Nations Team of multi-national personnel trained in disaster management for rapid assessment of priority needs and on-site coordination of international assistance. The team members are international disaster/emergency managers from all parts of the world. Under the UNDAC System, whenever a major disaster strikes a country and international assistance is warranted, the Office of the Coordination of Humanitarian Affairs (OCHA) deputes a team of experts trained in the UNDAC system to carry out an assessment of the requirements for assistance as well as coordinating such assistance with the host country. UN OCHA have empanelled and trained officers worldwide including officers from India. Upon request of a disaster-stricken country, the UNDAC team can be deployed within hours to carry out rapid assessment of priority needs and to support national authorities and the United Nations Resident Coordinator to coordinate international relief on-site. 9.6.3 Officers trained under the UNDAC system ( who have attended the UNDAC Induction and Refresher courses) are on contract with the UNDAC for a period of two years (a token amount of 1 USD per year is given to the Officer) after some documentary formalities. After the expiry of the contract, it has to be renewed. Such officers are known as Active members in the UN OCHA parlance and they are liable to be requisitioned for disaster assessment by the UN OCHA in any disaster affected country. 9.6.4 The Government of India have joined the membership of United Nations Disaster Assessment & Coordination (UNDAC) system and has paid, an amount of US$ 50,000 (Fifty thousand) in 2001, with UNOCHA the implementing body of UNDAC programmes.

9.7 United Nations Office for the Coordination of Humanitarian Affairs (UNOCHA) 9.7.1 The United Nations Office for the Coordination of Humanitarian Affairs (UNOCHA) is a United Nations body formed in December 1991 by the General Assembly resolution 46/182. The resolution was designed to strengthen the response of UNO to complex emergencies and natural disasters by creating the Department of Humanitarian Affairs (DHA), and replacing the Office of the United Nations Disaster Relief Coordinator, which had been formed in 1972. The OCHA was therefore the result of a 1998 reorganization of the DHA and was designed to be the UN focal point on major disasters. Its mandate was also expanded to include the coordination of humanitarian response, policy development and humanitarian advocacy. OCHA is thus an inter- agency body, serving UN agencies and NGOs in the humanitarian domain. Its main product is the Consolidated Appeals Process, an advocacy and planning tool to deliver humanitarian assistance together in a given emergency.

9.7.2 OCHA is headed by the Undersecretary-General for Humanitarian Affairs and Emergency Relief Coordinator. OCHA has 1,064 staff located across the world. Major OCHA country offices are located in Afghanistan, Burundi, Central African Republic, Chad, Colombia, Democratic Republic of Congo, Guinea, Ivory Coast, Palestinian territories, Sri Lanka and Sudan (including a sub-office in Southern Sudan’s capital Juba), while regional offices are located in Panama City,

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Dakar, Cairo, Johannesburg, and Bangkok. OCHA also has some liaison and support staff in New York and Geneva.

9.8 International Search and Rescue Advisory Group (INSARAG) 9.8.1 INSARAG is a global network of more than 80 countries and disaster response organizations under the United Nations umbrella. INSARAG deals with urban search and rescue (USAR) related issues. INSARAG aims at establishing standards for international USAR teams and methodology for international coordination in earthquake response. Members of INSARAG are both earthquake-prone and responding countries and organisations. INSARAG was established in 1991, following initiatives of international search and rescue teams that responded to the 1988 Armenia earthquake. 9.8.2 INSARAG Structure: INSARAG policy is determined by its Steering Group. The Steering Group meets annually to review achievements and areas of improvement. It is composed of representatives from each INSARAG Regional Group (Africa, Europe, Asia/Pacific, and the Americas) and the INSARAG Secretariat (FCSS in OCHA-Geneva). 9.8.3 Regional Groups: To facilitate worldwide participation, INSARAG is organized in three regional groups: Africa & Europe, Asia & Pacific and the Americas. The regional groups meet annually to exchange information and experiences acquired in previous relief operations, plan SAR training and discuss methodology for cooperation among SAR teams. It makes recommendations to the Steering Group for further improvement of international cooperation and coordination in disaster response. 9.8.4 Working Groups: INSARAG creates regional and international working groups on an “as required” basis to develop solutions to problems that were identified in regional meetings. The working groups discontinue after delivering the requested result. All member countries and organizations are encouraged to participate in INSARAG Working Groups. 9.8.5 INSARAG Membership: INSARAG is a network of stakeholders of international earthquake response. Any country or organization with international urban search and rescue response capacity or countries that are prone to earthquakes may join the network. India is a member of INSARAG Asia Pacific Regional Group and has been participating in the INSARAG meetings at international and regional levels. Instructors from India participate in the mock exercises organized by the INSARAG. 9.8.6 India was the Chairman of INSARAG Asia Pacific Regional Group in 2005-06 and organized the meeting as well as the UNDAC Refresher Course during this period of the chairmanship. The INSARAG Guidelines provide guidance for the preparation and deployment of search and rescue (SAR) teams for international disaster response operations to earthquake-prone countries as well as checklists for the minimum requirements of USAR teams envisaged for international response operations. The INSARAG Guidelines define coordination and cooperation procedures for international and national responders in major disasters. The following phases are covered: x Preparedness x Activation x Operation x Reassignment/stand-down x Return to home base.

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In addition, the guidelines focus on topics of particular concern to any organisation that are deployed to international emergency response operations. These include background information about the international humanitarian environment and an explanation of the role of the United Nations system (i.e. OCHA and other UN Humanitarian Agencies) as well as the concept for the On-Site Operations Coordination Centre (OSOCC).

9.8.7 USAR Exercises: Each year, INSARAG organises regional USAR simulation-exercises and awareness training courses. These events provide a platform to introduce and practice disaster response coordination methodology as defined in the INSARAG Guidelines. The exercises and courses are typically hosted by earthquake-prone countries. The target audiences are national disaster managers, the UNDAC team, IHP Support Modules as well as domestic disaster response teams and international USAR teams. The recent INSARAG Asia-Pacific Earthquake Response Exercise was held in Agra, India from 3-6 May, 2011.

9.9 Global Facility for Disaster Risk Reduction (GFDRR) 9.9.1 GFDRR was set up in September 2006 jointly by the World Bank, donor partners (21 countries and four international organisations), and key stakeholders of the International Strategy for Disaster Reduction (UN-ISDR). It is a long-term global partnership under the ISDR system established to develop and implement the HFA through a coordinated programme for reversing the trend in disaster losses by 2015. Its mission is to mainstream disaster reduction and climate change adaptation in a country’s development strategies to reduce vulnerability to natural hazards. At the national and local levels, it also includes other sectoral development strategies that the countries most vulnerable to natural disasters may undertake to alleviate poverty and address sustainable growth. 9.9.2 GFDRR has three main business lines (Box 9.2) to achieve its development objectives at the global, regional and country levels.

Box 9.2: Development Objective at Global, Regional and National Level Track-I Global and Regional Partnerships (to strengthen and re-organise ISDR processes to increase its outreach) Track-II Mainstreaming Disaster Risk Reduction (DRR) in Development (benefits low to medium income countries; supports sectoral projects like health, education and research etc.) Track-III Standby Recovery Financing Facility (SRFF) for Accelerated Disaster Recovery (focuses in low income countries).

As and when required, India has been participating in the status of observer in the GFDRR programme. 9.10 ASEAN Region Forum (ARF) 9.10.1 The ASEAN Regional Forum (ARF) was established in 1994. The ARF membership including India, which joined in 1996 is 25 countries. The first ARF meeting in 1994 brought together Foreign Ministers from Australia, Brunei, Canada, China, European Union (Presidency), Indonesia, Japan, Laos, Malaysia, New Zealand, PNG, Philippines, Republic of Korea, Russia, Singapore, Thailand, USA and Vietnam. The current Chairman of ARF is H. E. Pham Gia Khiem, Deputy Prime Minister and Minister for Foreign Affairs, Ministry Govt. of, Vietnam. ASEAN established the ARF Unit at the ASEAN Secretariat, Jakarta, Indonesia on 26th June 2004.

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9.10.2 Based on its Terms of Reference, the ARF Unit’s role and functions are as follows: x To support the enhance role of the ARF Chair, including interaction with other regional and international organizations, defense officials dialogue and Track II organizations, x To function as depository of ARF documents/papers, x To manage database/registry, x To provide secretarial works and administrative support, including serving as the ARF’s institutional memory. 9.10.3 The ARF is the Principle Forum for Security Dialogue in Asia and complements the various bilateral alliances and dialogues, which underpin the region’s security architecture. The ARF is premised on the idea drawn from the ASEAN experience that a process of dialogue can produce qualitative improvements in political relationships. It provides a platform for members to discuss current regional security issues and develop cooperative measures to enhance peace and security in the region. 9.10.4 The ARF is characterised by consensus decision-making and minimal institutionalisation. The ARF concept paper set out a three-stage, evolutionary approach to the ARF’s development, moving from confidence building to preventive diplomacy and, in the long term, towards a conflict resolution capability. While the ARF continues to focus on confidence building measures, ARF members have also agreed that preventive diplomacy should proceed in tandem with these efforts, particularly in areas of overlap between confidence building and preventive diplomacy. As all ASEAN members are automatically ARF members, India is actively participating in the ARF meetings and disaster relief exercises. 9.11 Asian Disaster Reduction Centre (ADRC) 9.11.1 A resolution was adopted at the United Nations General Assembly in 1997 to reduce damage from natural disasters substantially by designating the 1990s as the International Decade for Natural Disaster Reduction. Following a series of national conferences held during the period from 1994 to 1997 to discuss the cooperation for disaster reduction, a ministerial level conference was held in Kobe, Japan in 1995 in which 28 countries from Asia and other regions participated. It adopted the Kobe declaration which includes an agreement to consider the creation of a system which has the functions of a disaster reduction centre for the Asian region. The Asian Disaster Reduction Centre (ADRC) was thus established in Kobe in 1998 following an agreement among the participating countries with the Japanese government. 9.11.2 The mission of the ADRC is to enhance disaster resilience of the member countries, to build safe communities and to create a society where sustainable development is possible. The

Box 9.3: GOI-UNDP Disaster Risk management Programme Programme Objectives: Ɣ National capacity building to institutionalize and promote policy frameworks for disaster risk management programme Ɣ Education, awareness programmes and strengthening capacities for natural disaster risk management and sustainable recovery from community level to State and National level Ɣ Multi-hazard preparedness, response and mitigation plans for disaster risk management at state, district, block, village and cities in 169 most multi-hazard prone districts of 17 selected states Ɣ Networking of knowledge among the DM Communities for disaster risk management

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Programme Achievements: ƒDisaster management and mitigation plans developed for 17 states, 176 districts, 1622 blocks, 32, 000 local governance bodies and 1,57, 000 villages, ƒAt the district level, 15, 613 Panchayati Raj Institutions members including 3506 women trained in the disaster management, ƒAt the Block level, 1,14,194 PRIs members including 15490 women and 2,25,819 village volunteers including 60,608 women trained in disaster management, ƒAt the Gram Panchayat level 4,06,809 Disaster Management Community (DMC) members including 74,139 women and 1,65,314 Disaster management Team (DMT) members including 34, 112 women trained in disaster management and search & rescue respectively, ƒ7,18,141 village DMT members including 1,24,733 women trained in first aid, 6,94,712 village DMT members including 1,24,733 women trained in search and rescue, ƒTextbooks on disaster management introduced nationally in school for students aged 12 to 15 years, ƒDisaster Management introduced in school curriculum by 14 state education boards, and nearly 55,000 teachers trained in disaster preparedness, ƒCapacities of over 1640 architects, 9,926 engineers and more than 38,000 mason developed in seismically-safe construction practices. ƒMaster trainers from hospital in 38 cities trained in hospital preparedness, and over 225,800 volunteers trained to undertake community- based disaster management activities, ƒAwareness campaigns on disaster management undertaken at all levels by local volunteers and elected representatives, ƒA web-enabled Disaster Resource Network, with over 126,000 records from 576 districts in 35 States/ UT of India created, ƒTwelve Emergency Operation Centres (EOCs) at the state level and 89 EOCs at district level set up using disaster resistant technology and these act as coordination hub, ƒLow cost IEC and training materials developed under the programme including manuals on safe construction practices, school safety guidelines and draft amendments to building by-laws.

Centre works to build disaster resilient communities and to establish networks among countries through many programmes including personnel exchanges in this field. Currently there are 29 member countries of ADRC. Each member country has to bear the annual contribution calculated on the basis of GDP. India is one of the founder members of ADRC. Presently India contributes about US $ 28,100 annually to ADRC as membership fees.

9.11.3 Key activities of ADRC are as under: x Collaboration with UN organizations, x To organise the Asian Conference on Disaster Reduction, an annual international conference for officials responsible for disaster reduction efforts in member countries and experts employed by the UN and other international agencies, for the purpose of sharing disaster information and reinforcing mutual cooperation between member countries and agencies, x Systematic gathering of information on natural disaster and disaster reduction, setting up a database of Asian disaster-reduction information and sharing experiences for a Safer Asia including satellite data x Development and application of the Global unique disaster Identifier Number (GLIDE) system:

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ADRC proposed a globally common, unique identification scheme for disaster events, as a tool for facilitating the sharing of disaster information archived by organisations around the world x Human Resource Development by visiting research programmes, disaster reduction seminars and training courses; x Promoting cooperation with member countries, international organizations and NGOs through cooperative projects with member countries; x Disaster Reduction Projects in SAARC countries. At present using a special fund of Japan- SAARC, the ADRC has been conducting projects for Earthquake Risk Reduction and Recovery Preparedness (ERRP) Programme for the South Asian Region. 9.12 Asian Disaster Preparedness Center (ADPC) 9.12.1 ADPC is established in 1986 at Bangkok,Thailand. It is a non-profit, non-political, autonomous, regional organisation serving as a regional centre in Asia-Pacific for promoting disaster preparedness, disaster mitigation, awareness generation, exchange of information, community participation etc. Prof. Dr Krasae Chanawongse, Minister to the Prime Minister’s Office, Thailand is the current Chairman of the Board of Trustees (BoT) of ADPC.

9.12.2 India is a member of the Board of Trustees (BoT), since August 2000. Union Home Secretary is one of the Members of the BoT of ADPC, since the transfer of subject of Disaster Management to Ministry of Home Affairs from the Ministry of Agriculture in June, 2002. Secretary (BM) is member of the Advisory Council & Regional Consultative Committee of ADPC. In 2004, the ADPC became an international body (inter governmental organization). Officials of the Ministry of Home Affairs have been attending the meetings of the Regional Consultative Committee (RCC) of the ADPC and meetings of the Board of Trustees.

9.13 SAARC Disaster Management Centre (SDMC) 9.13.1 SAARC is association of South Asian countries for regional cooperation which was established on 16th January, 1987. It has eight member countries, namely Afghanistan, Bangladesh, Bhutan, India, Maldives, Nepal, Pakistan and Sri Lanka with its head quarters at Kathmandu. SAARC Disaster Management Centre (SDMC) was set up in October 2006 at the premises of National Institute of Disaster Management in New Delhi. The Executive Director of the NIDM is also the Director of SAARC Disaster Management Centre New Delhi.

9.13.2 The Centre has the mandate to serve all eight Member Countries of South Asia Association of Regional Cooperation (SAARC) - by providing policy advice and facilitating capacity building services including strategic learning, research, training, system development and exchange of information for effective disaster risk reduction (DRR) and management in South Asia. The Centre has developed its network with various organisations and institutions in the South Asian countries for research, documentation training and capacity building. and to promote better cooperation and understanding amongst the countries for holistic management of disasters.

9.13.3 The main functions of the SAARC Disaster Management Centre are: xDocument and disseminate date, information, case studies, indigenous knowledge and good practices relating to disaster management particularly from the member countries,

184 International Cooperation xTo analyze information, undertake research and disseminate research findings on disaster management among the member countries, xTo develop educational materials and conduct academic and professional courses on disaster management, xTo organize training and awareness programmes for various stakeholders on disaster management for the member countries, xTo develop training modules on various aspects of disaster management and conduct programmes of Training for Trainers including simulation exercises, xTo provide assistance in the formulation of policies, strategies, disaster management frameworks and any other assistance as may be required by the member countries or organisations and institutions nominated by the member countries, xTo undertake, organise, facilitate and participate in workshops, conferences, seminars, lectures etc. on various aspects of disaster management in the member countries, xTo undertake publication of journals, research papers and books and establish and maintain an online resource centre in furtherance of the aforesaid objects, and xTo collaborate with other SAARC centres, particularly SMRC, SCZMC and SAARC Forestry Centre to achieve synergies in programmes and activities. 9.14 Engagement of UN Agencies in DRR There are various other agencies working under the United Nations System, which are engaged in promoting the policies and programme in Disaster Risk Reduction (DRR). A summary sheet of such agencies based on the publication of UNISDR, Geneva is produced below in Table 9.1.

Table 9.1: Engagement of UN Agencies in Disaster Risk Reduction (DRR) Name of agency Head quarter Disaster Reduction Goal Food and Agriculture Rome FAO addresses DRR as integral part of its wider Organization (FAO) approach to disaster management, aiming to reduce the vulnerability of people before, during and after disasters. International Labour Geneva, Switzerland ILO aims to reduce the impact of disasters on Organization (ILO) the employment and income by promoting risk reduction measures for productive livelihood and effective and efficient post-disaster recovery efforts. International Geneva, Switzerland ITU goal in disaster reduction is to strengthen Telecommunication Union emergency communications for disaster (ITU) prevention and mitigation. Office of the United Nation Geneva, OHCHR emphasizes the need for a human High Commissioner for Switzerland right-based approach to be integrated into DRR Human Rights (OHCHR) and programmes, HFA and post HFA activities.

United Nations Centres Japan UNCRD focuses on various disaster for Regional Development management initiatives through multi-lateral (UNCRD) collaboration at an international level through its disaster management planning office HFA office, Japan.

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Name of agency Head quarter Disaster Reduction Goal The United Nations Nairobi, Kenya Through its disaster risk reduction programme, Environment Programme UNEP aims to reduce the impact of Natural (UNEP) hazards on vulnerable communities and countries through sound environmental management. United Nations Educational, Peris, France UNESCO assists Member states in building Scientific and Cultural capacities to withstand and cope with natural Organization (UNESCO) events and human induced disasters, including those of a technological nature. The United Nations Bonn, Germany The Cancun Adaptation Framework includes Framework Convention on specific provisions for Disaster Risk Reduction Climate Change Secretariat (DRR) and risk management as part of enhanced (UNFCCC Secretariat ) action on adaptation to climate change. United Nation Population New York City To ensure adequate emergency preparedness Fund (UNFPA) and contingency planning at country level and improve environmental protection. United Nations Human Nairobi UN-HABITAT’s main goals related to disaster Settlements Programmes risk reductions are: Increasing investment (UN-HABITAT) in disaster risk reduction, addressing root causes of disasters, incorporating vulnerability reduction in development plan and building a culture of prevention. United Nations New York, USA UNDP supports disaster-prone countries to Development Programme develop- comprehensive disaster risk reduction programmes, strengthen institutional and legislative systems, implement community- level disaster preparedness activities including contingency planning and early warning, establish coordination mechanisms to ensure the integration of risk reduction into human development as well as developing national capacities for recovery planning. United Nations Children’s New York, USA UNICEF has developed a global framework for Fund (UNICEF) disaster reduction. This focuses on protection and risk reduction for those who are most vulnerable to disasters: Children and Women.

United Nation Institute for Geneva, Switzerland Develop capacities of Member States their local Training and Research authorities to reduce disaster risks. Develop applied research applied research in the use of remote sensing and satellite based vulnerability and risk mapping Office of the High United State of To strengthen disaster mitigation and Representative for the America preparedness and promote the sustainable least Developed Countries, development of the Least Developed Countries Landlocked Developing (LDCs), Landlocked developing Counties Countries and Small Island (LLDCs) and Small Island Developing States Developing States (UN- (SIDS) OHRLLS)

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Name of agency Head quarter Disaster Reduction Goal United Nation Office Vianna Ensure that all countries and international for Outer Space Affairs and regional organizations have access to and (UNOOSA) develop the capacity to use all types of space based information and solutions support the full disaster management cycle United Nations University Tokyo Knowledge generation, capacity development, (UNU) knowledge transfer , networking are the four cornerstones guiding philosophy and work at UNU United Nations Volunteers New York To mobilize volunteers and strengthen (UNV) volunteerism initiatives in support of disaster risk reduction and management, especially to strengthen the community capacity to respond to and prevent disasters World Food Programme Nanaimo WFP Disaster Risk Reduction policy aims at (WFP) strengthening WFP's compliance with the HFA and mainstreaming DRR at all level within the organization World Health Organization Geneva, Switzerland TO support countries in building capacity in (WHO) risk reduction and emergency preparedness. World Meteorological Geneva, Switzerland To enhance the contributions of National Organization (WMO) Meteorological and Hydrological services, in a more cost-effective, systematic and sustainable manner, towards the protection of lives, livelihoods and property. The world Bank Washington DC The overarching objective is main objective is to maintain disaster reduction and climate change adaptation in country development strategies. Source: ISDR

9.15. India’s engagement with external agencies on Disaster Risk Reduction India is engaged with UNDP and US Aid for building the capacity of its response mechanism, mapping the vulnerabilities to different kind of disasters, besides strengthening the various institutions engaged in disaster management. It has entered in to MOU with the few countries in the field of disaster management and has been working closely with the several countries in the exchange of ideas and expertise developed to meet the challenges of several natural disasters. The efforts undertaken towards the aforesaid activities are given in the subsequent Paras. 9.16. United Nations Development Programme 9.16.1 UNDP established on 22nd November 1965 is the UN’s global development network, with headquarters at New York to advocate for change and to connect countries through knowledge, experiences and resources to help people build a better life. In India, it works closely with the Government of India through its designated nodal department for different welfare programmes and the Department of Economic Affairs (DEA) in the Ministry of Finance.

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9.16.2 In the field of disaster management, UNDP has been engaged with India since the Latur earthquake in 1993, followed by its involvement in the capacity development programme in 1996. In 1999, after the super cyclone in Orissa, it supported the community-based disaster risk management programme in 20 blocks in Orissa which ultimately led to the formulation and implementation of the Disaster Risk Management Programme aimed at building the community’s resilience in disaster preparedness and mitigation measures. Under this programme, which was implemented in partnership with the Ministry of Home Affairs, assistance to the tune of US $ 41 million was provided to the central government and 17 state governments for disaster risk reduction primarily at the community level in 176 multi hazard prone districts. It also had an urban earthquake vulnerability reduction component implemented in 38 cities during 2002- 2009.

9.16.3 After the successful implementation of this DRM Programme, the Government of India together with UNDP, has launched a new programme for Disaster Risk Reduction (DRR) with an outlay of $20 million (approximately ` 100 crores). At present the DRR Programme is being implemented in 26 states and 58 cities across the country under the overall supervision of Programme Management Board headed by Secretary (Border Management).

9.16.4 The GOI-UNDP DRR Programme (2009-2012) has two components: (i) Institutional Strengthening and Capacity Building for Disaster Risk Reduction (DRR) (ii) Urban Risk Reduction (URR). 9.16.5 DRR project is being implemented by NDMA with an outlay of USD 12.6 million (approximately ` 63 crores) and URR project is being implemented by Disaster Management Division, MHA with an outlay of USD 7.4 million (` 37 crores). The Joint Secretary, MHA is the National Programme Director for URR component. The Joint Secretary, NDMA is the National Programme Director for DRR component.

9.16.6 The objective and major activities undertaken in the programme are as follows: Objective: To strengthen the institutional structure to undertake disaster risk reduction activities at various levels (state, district, city, urban local body) including risks being enhanced due to climate change, and develop preparedness for recovery.

Major Activities: x Strengthening the State and District Disaster Management Authorities to fulfil their responsibilities as stipulated in the Disaster Management Act, 2005

x Developing methodologies and modalities for ensuring risk reduction through integration in development programmes of all partners at national, state and community levels

x Enhancing the capacity for urban risk reduction by addressing planning capacity building, and ensuring suitable legislative and regulatory mechanisms to promote safe built environment

x To strengthen the recovery framework, through which the people affected by disasters (especially the most vulnerable) are able to access resources for rebuilding their lives and reviving their livelihoods, and

x To strengthen the knowledge and information sharing platform in disaster management.

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9.17. Program for Enhancement of Emergency Response (PEER) 9.17.1 The Program for Enhancement of Emergency Response (PEER) is a regional training programme initiated in 1998 by the United States Agency for International Development’s, Office of U.S Foreign Disaster Assistance (USAID/OFDA) to strengthen disaster response capacities in Asia. India, Indonesia, Combodia, Vieteman, Loa PDR Philippines, Nepal, Pakistan and Bangladesh are the participating countries under the programme. PEER is a five years training programme started in March 2009, funded by United States Agency for International Development (USAID) and identified outside the Disaster Management Support Project Grant.

9.17.2 Programme Objectives: Following have been the objectives of the programme i. Community Action for Disaster Response (CADRE): This training program targets local, non-professional emergency responders, drawing upon PEER core trainings, i.e. Medical First Responder (MFR) and Collapsed Structure Search and Rescue (CSSR) Courses. Country coverage: Bangladesh, Cambodia, India, Indonesia, Lao PDR, Nepal, Pakistan, Philippines and Vietnam. ii. Hospital Preparedness for Emergencies (HOPE): Designed for health-care personnel, both administrative and medical, to prepare health-care facilities and personnel to respond effectively to emergencies involving large numbers of casualties. The course will enable hospitals/health facilities to develop well-designed, facility-specific disaster preparedness plans to increase their ability to respond to emergencies and continue functioning to provide critical medical care. Country coverage: Bangladesh, Cambodia, India, Indonesia, Lao PDR, Nepal, Pakistan,Philippines and Vietnam. iii. Medical First Responder (MFR) and Collapsed Structure Search and Rescue (CSSR) Course: The main goal under this objective is to establish and strengthen the capability of PEER Countries to provide collapsed structure search and rescue; and basic and advanced life, Support during emergencies by further strengthening and institutionalizing the Medical First Responder (MFR) and Collapsed Structure Search and Rescue (CSSR) courses. MFR Course provides individuals the knowledge and skills necessary to assess, treat and transport sick or injured patient, as a result of an emergency or disaster, thus training them for “First Response Task”. CSSR Course provides individuals with collapsed structure rescue tasks the knowledge and skills necessary to search for, stabilize and extricate victims trapped in collapsed structures using the safest and most appropriate procedures, thus training them for “Collapsed structure rescue task.” Country coverage: Bangladesh, India, Indonesia, Nepal, Pakistan and Philippines.

Box 9.4: PEER Hierarchy of Training for MFR-CSSR Stream

Line # 1 MFR TFI MFRIW MFR Assistant Instructor MFR Full Instructor A potential instructor candidate undergoes and complete MFR course then proceeds to TFI, gone to MFRIW. After completion of MFRIW, the same candidate may qualify to serve as Assistant Instructor, for at least in one MFR course prior to serving as Full instructor.

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Line # 2 CSSR TFI CSSRIW CSSR Assistant Instructor CSSR Full Instructor A potential instructor candidate undergoes and completes CSSR course then proceeds to TFI, goes to CSSRIW. After completion of CSSRIW, the same candidate may qualify to serve as Assistant Instructor, for at least in one CSSR course prior to serving as Full Instructor Line #3 MFR CSSR TFI MFRIW MFR Assistant Instructor MFR Full Instructor In phase 2, MFR course has become a minimum requirement prior to completing CSSR. The potential instructor candidate who successfully completes MFR and CSSR shall be recommended to proceed to TFI then to MFRIW. Based on some, factor, he/she may be more effective as instructor for MFR courses Line # 4 MFR CSSR TFI MFRIW CSSRIW MFR and CSR instructor (Assistant then to Full Instructor) The potential instructor candidate who successfully completes MFR and CSSR course shall be recommended to proceed to TFI. The instructor candidate may be highly- skilled and has demonstrated capabilities to teach both courses, hence, she/he may qualify and take up MFRIW and CSSRIW after completing TFI

Source: NSET, Nepal 9.18. United States Agency for International Development (USAID) – Assisted Disaster Management (DMS) Support Project 9.18.1 USAID with its headquarters in Washington, D.C is a governmental agency of USA providing economic, development and humanitarian assistance around the world in support of the foreign policy goals of the United States of America. A bilateral agreement was signed between USAID and the Government of India in September 2003 with the objectives to reduce vulnerability to disasters and build capacity of key Indian institutions. However a final agreement (in the nature of second amendatory agreement) was signed on 4th April 2007. The period of the original Agreement ended on 31st March, 2010. The scope of this bilateral agreement broadly includes three activities viz., Incident Response System (IRS), procurement of equipment and capacity building.

Box 9.5: Achievements made under USAID project

ƒ49 faculties from Regional Training Institutes (RTIs) and Administrative Training Institutes (ATIs) were trained in IRS through Training of Trainers (TOT) Programmes. ƒUnder the activities of capacity building of Indian disaster management institutions, 472 officers of LBSNAA, NDMA, NIDM, NDRF, NCDC and district officials of four pilot districts trained in IRS. ƒA comprehensive disaster management curriculum for Civil Defense cadre and a Disaster Communication for Public Information Officers developed. ƒ12 study tours have been undertaken so far in the programme, thus providing exposure to 52 Government officials. Institutional study for NIDM completed while second study for CDM of LBSNAA is in final stages of completion. ƒ Pilot studies undertaken in two districts each in the states of Gujarat, Andhra Pradesh and Assam for testing the pilot project, which could be replicated by other states for speedier institutionalisation of IRS in the disaster response management in the country. ƒEquipment for Advance Search & Rescue (ASAR) procured and supplied to the designated institute i.e. National Industrial Security Academy, Hyderabad. ƒThe process of procurement of the remaining equipment for Emergency Operation Centers in Ministry of Home Affairs, LBSNAA and NIDM is in the final stages.

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The main activities during the extended period of the agreement i.e. up to 31st March 2015 are to be implemented in the broad areas of integration of disaster risk reduction and climate change. 9.18.2 The activities identified for technical assistance of USAID are as follows:- x Down scaling climate modelling for local areas x Analysing risk of sea level rise in coastal cities x Hydro – meteorological risks of selected capital cities x Screening of land use and investment plans in selected capital cities x Training and capacity building. 9.19. INDO-SWISS Agreement 9.19.1 Against the backdrop of the earthquake in Gujarat and assistance given by the Government of Switzerland, an agreement with the Government of India and the Government of Switzerland was signed on 10th November 2003 for extending cooperation in the prevention and preparedness for handling natural disasters and assistance in the event of natural disasters or major emergencies. 9.19.2 The salient features of the agreement are as under:- ƒSwiss Government may offer and place at the disposal of the GOI the Aid Unit of the Humanitarian Aid of the Swiss Agency for the Development and Cooperation (SDC) in the affected area subject to acceptance of offer by GOI ƒEnhance Early Warning System, Human Resource Development and preventing and overcoming the baneful consequences of disaster by the exchange of relevant experience and information, and ƒEnhancement of capacity building, preparedness and training of rescue teams. 9.19.3 As per the Agreement, a three year training programme in Canine Search and Urban Search & Rescue (USAR) under the Indo-Swiss Collaboration for Training (INSWIT) for specialised training of National Disaster Response Force is under implementation since November 2007. 9.18.4 Till date, eight training missions under the (INSWIT) in Urban Search have been organised by the Swiss Agency for Development Cooperation at National Industrial Security Academy, Hyderabad and Basic Training Centre, Bhanu. The programme will facilitate the development of infrastructure of INSARAG standards and capacities to replicate it further.

9.20 Indo-Russian Agreement in the Field of Emergency Management A bilateral agreement has been signed with the Russian Federation during the visit of President of the Russian Federation for the Annual Indo-Russia Summit held on 21st December 2010. The salient features of the Agreement are as follows: ƒMonitoring and forecasting emergencies and assessment of their consequences; ƒInteraction, through competent authorities, between appropriate organisations involved in emergency management;

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ƒAssessment of risks for environmental emergencies due to pollution caused by an emergency; ƒJoint planning, development and implementation of research projects, exchange of scientific and technical publications and results of research works in the field of emergency management; ƒExchange of information, periodicals, methodological or any other publications, video and photo materials, as well as technologies, as mutually agreed within the scope of this Agreement; ƒOrganisation of joint conferences, seminars, workshops as well as exercises and training in the relevant fields; ƒJoint preparation of publications and reports as mutually agreed; ƒExchange of expertise and experiences in emergency management; ƒTraining of specialists in the educational institutions of the other party, exchange of trainees and experts to facilitate capacity building in the field of emergency management; ƒRendering assistance, as mutually agreed, for providing technical facilities and equipment, enhancing early warning systems and capacity building of the parties in emergency management; ƒProviding assistance, as mutually agreed, in emergency response, and ƒAny other activities related to emergency management, which may be mutually agreed by the competent authorities of the parties. 9.21. Third Trilateral Meeting of Experts of India- Russia and China 9.21.1 As a follow up of the India-Russia-China (IRC) Foreign Ministers meeting held in Yekaterinburg (Russia) in May 2008, two trilateral meetings of experts of IRC were held at Samara, Russia (July, 2008) and at Sanya, China (November, 2009) respectively. The 3rd Trilateral Meeting of Experts of IRC was hosted by Ministry of Home Affairs, Government of India on 12th and 13th November 2010 at New Delhi. 9.20.2 An action plan for implementation for future trilateral cooperation between India, Russia and China as agreed includes: ƒVisit of experts on geo-spatial technologies in the field of flood and drought ƒRisk assessment and risk mapping of disasters x Sharing of experiences in dealing with major emergencies x Training and capacity development of disaster management. The next trilateral meeting is agreed to be held in St. Petersburg, Russia in August September 2012. 9.22. Asian Minister Conference on Disaster Risk Reduction (AMCDRR) 9.22.1 Following the World Conference on Disaster Reduction in 2005, several initiatives were undertaken to strengthen the ISDR system to be able to better respond to current disaster trends and the increased expectations and demands by nations and communities for supporting implementation of the Hyogo Framework for Action 2005-2015 (HFA).

192 International Cooperation

9.22.2 This has resulted in increased political commitment and financing of disaster reduction, including development sectors. At the global level more coherence and better coordination amongst ISDR system partners has been achieved through joint work planning and prioritized deliverables. A common approach to work programming in the ISDR system was developed during the 2006-2007 biennium in the context of the former Inter-Agency Task Force on Disaster Reduction and presented to the first session of the Global Platform. 9.22.3 Those consultations gave rise to an ISDR system joint planning framework for country, regional and global levels based on the priorities for action of the Hyogo Framework. To monitor and share the country’s progress at a regional platform, AMCDRR was conceptualized. Since then four such conferences were held to enhance and promote regional cooperation for seamless implementation of HFA. a. The 1st AMCDRR was held in China in August 2005 known as Beijing resolution with the strategic objective of enhancing regional cooperation in the implementation of HFA in Asian region and disaster management cooperation between governments. b. The 2nd AMCDRR was hosted by India in November 2007 at New Delhi with the strategic objective of construction of joint response system through cooperation among each governments, regional cooperative bodies UN and international organizations. c. The 3rd AMCDRR was held in December 2008- known at Kaulalampur, Malasiya, which focused on cooperative system through “mutual assistance with private sector” between various parties concerned in the Asian and Pacific region. d. The 4th AMCDRR was held at Inchon, South Korea during October 2010 known as Incheon declaration focused on three main themes as mentioned below: ƒRaising awareness and building capacity for DRR & CCA ƒDeveloping and Sharing information, technology, sound practices and lessons learned in climate and disaster risk management. ƒPromoting integration of DRR & CCA into development for green growth. 9.23. Conclusion This chapter has attempted to capture the various international cooperation initiatives. While India does not seek assistance during the relief and response phases, it welcomes sharing of expertise and also technical assistance based on various international developments. As a signatory to the Hyogo Framework of Action, India is also committed to achieve the priorities and the objectives through systematic and institutional efforts.

193 Disaster Management in India The Way Forward 10.1 Background In the last decade there has been a paradigm shift in Disaster Management in India, a distinct move from the earlier approach of post disaster relief to pre-disaster preparedness, mitigation and risk reduction. The 10th Five Year Plan document emphasised that “while hazards, both natural or otherwise, are inevitable, the disasters that follow need not be so and the society can be prepared to cope with them effectively whenever they occur” and called for a “multi-pronged strategy for total risk management, comprising prevention, preparedness, response and recovery, on the one hand, and for initiating development efforts aimed towards risk reduction and mitigation, on the other”. It is stated that only then we can look forward to “sustainable development.” The country is also committed to mainstream disaster risk reduction into the process of development planning at all levels for sustainable development, as stated in Hyogo Framework of Action 2005-15: Building the Resilience of Nations and Communities to Disasters. 10.2 Recent Initiatives The 11th five year plan document of Government of India gave impetus to mainstreaming disaster risk reduction as one of the priority programmes in the development planning process and disaster management. “Building Back Better” has become the underlining principle in any post disaster reconstruction and rehabilitation programme implemented by Government of India. As mentioned in the report of the working group on Disaster Management for the 11th plan and also in the various initiatives towards this effort, the way forward can be divided in the following major areas – x Policy guidelines at the macro level that would inform and guide the preparation and implementation of disaster management and development plans across sectors, x Building in a culture of preparedness and mitigation, x Operational guidelines of integrating disaster management practices into development, and specific developmental schemes for prevention and mitigation of disasters, x Having robust early warning systems coupled with effective response plans at district, state and national levels. x Building capacity of all stakeholders, x Involving the community, NGOs, CSOs and the media at all stages of DM, x Addressing gender issues in disaster management planning and developing a strategy for inclusive approach addressing the disadvantaged sections of the society towards disaster risk reduction, and x Addressing climate risk management through adaptation and mitigation. 10.3 Suggested Steps To achieve results in these key identified areas, the following suggested steps should be integral to all stages of DM including developing a culture of prevention by introducing disaster management in school curricula , professional courses and enhancing the capacity of disaster managers by strengthening training facilities for disaster management; creating mass awareness by disseminating knowledge about the hazards and risks and promoting coping capacities of the communities through community based disaster risk management for better preparedness

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and response; fostering social and gender equality in disaster risk reduction by planning and focusing on the needs of the disadvantaged sections of the society. The summarised list of actions that needs to be taken is as follows: 10.4 Developing a Centralised Database In collaboration with the Central Statistical Organization (CSO) an integrated Centralised Disaster database requires to be developed. Data collection on standardised format should be the responsibility of the concerned state government. Such database would facilitate researchers and decision makers to undertake range of analyses to better understand the linkages between disaster management and other sectors that would help in taking up informed risk reduction activities as well as to understand the impact of disasters on economy.

10.5 Early Warning Systems and Communication and Connectivity upto the Last Mile Early warning systems vary for the different types of disasters. Due to recent unprecedented devastation unleashed by tsunami, often early warning gets linked with tsunami only, masking the importance of early warning against other forms of disasters. Hazard- specific efficient ‘early warning systems’ is the need of the hour and it has to be put in place permanently, so that useful information flows throughout the year and is easily understood by the local community. There is scope for improvement in flood, cyclone and storm surge warnings. Such projects need further encouragement and newer projects should be accorded high priority. Even with the best of early warning systems, the impact may still be catastrophic if early warning signals are not properly interpreted and communities are not educated and trained to respond to the early warning signals in real time. Therefore, the technology to early warning, on the one hand and, community response to early warning to the other are urgently required. This needs to be coupled with the National Emergency Communication Plan to ensure real time dissemination of early warnings and information to the ‘at risk’ community and the local authorities.

10.6 Emergency Operations Centers (EOCs) EOCs in the country could play a critical role in coordinating emergency activities as well as in providing information to various stakeholders. Effective functioning of these EOCs during emergencies continues to be a major challenge. “State of the art” EOCs at state and district levels with access to satellite based imageries need to be planned and established.

10.7 Mitigation Plans and Mainstreaming Disaster Management into the Development Planning Process 10.7.1 Three committees constituted by Government of India are working towards preparing the National Response Plan, National Human Resource and Capacity Development Plan and National Mitigation Plan in respective ministries that have been designated as nodal agencies for various disasters. The draft National Response Plan and National Human Resource and Capacity Development Plan are ready. Certain rectifications and modifications are underway before it is presented to the National Executive Committee for its finalisation.

10.7.2 It is expected that National Response Plan will be put in place once it is adopted by Government of India. It will pave the way for institutionalising the response plan in three tiers as envisaged in the Disaster Management Act.

196 The Way Forward

10.7.3 Similarly, the Capacity Development Plan, once it is approved and adopted will provide the roadmap for undertaking the capacity building of persons engaged in different facets of disaster management and enhancing the capacities both at the individual and organizational levels. 10.7.4 So far, Ministries of Defence, Mines (Geological Survey of India), Department of Atomic Energy, Department of Agriculture & Cooperation, Railways and Water resources have submitted their mitigation plans which are under examination and finalisation. Once these mitigation plans are approved, the concerned Ministries will undertake the recommended prevention and mitigation measures to address the hazards and risks involved in the core activities of their sector. It is the endeavor of the Government to persuade the other ministries to bring their mitigation plans at the draft stage and take it further for its approval and adoption. 10.7.5 Working Group on Disaster Management: Planning Commission, GOI, has constituted a working Group on Disaster Management for providing inputs to the 12th Five year Plan (2012- 2017) vide no. M-12016/03/2011-PAMD. The Terms of Reference (specific to working group) were as under; a. To recommend measures to streamline existing institutional structure on disaster management in order to avoid multiplicity of structures keeping in view the provision of the Disaster Management Act 2005. b. To review implementation of disaster management policy towards disaster risk reduction, preparedness and mitigation at Centre and State levels and in the private sector. c. To explore innovative ways and means for applicable of Science & Technology in disaster risk reduction. d. To draw a roadmap and policy framework to encourage public-private partnership and community participation in disaster management. e. To assess integration of disaster management related concerned to be inbuilt central sector and centrally sponsored schemes/projects. f. To suggest programmes for capacity building for disaster mitigation at Centre, State and district levels with special reference to rural and urban area. g. To indentify priority areas and projects along with financial resources to be undertaken through NDMA. Central Ministries and State Govts in integrated manner during the 12th Plan period

10.8 Strengthening the Preparedness Phase Some of the illustrative areas and activities that would reduce the risk from hazards in the preparedness phase are summarised as follows- 10.8.1 Urban Planning and Zoning: There is a need to enhance the efforts for integrating disaster risk reduction elements in settlement planning and land use zoning to mitigate flood and earthquake risks. This issue had been mentioned repeatedly at different for a by administrators, practitioners and NGOs working in the area of disaster management. Human settlements must be viewed not only from the perspective of their vulnerability, but also from the perspective of the disasters that they create or that they exacerbate. There is an urgent need to examine such settlements being developed by private builders and developers, which could increase flood

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vulnerability in urban and rural areas of many states. Planned urban settlements and housing is the need of the day for disaster risk management that leads to sustainable development, particularly in ecologically sensitive regions, high risk locations and high population density pockets. 10.8.2 Building Codes and Enforcement: Building codes are adhered to only in engineered structures and not in the huge majority of houses across rural and urban India. The building codes have to be continually upgraded with the advent of new information and technology. The greatest challenge, however, is in respect to enforcement of the building codes. 10.8.3 Housing Design and Finance: It has been difficult to ensure compliance to disaster resistant technology at individual house level. There is need to find alternative ways to encourage and facilitate individual home builders to use disaster-resilient designs, materials and techniques in the construction of their homes. Publicity and audience friendly information emphasising appropriate designs and the cost differences will go a long way in creating awareness among people for their adoption. Some financial incentives or tool may motivate people, particularly poor people or first-time house owners, to incorporate safety features in their houses. 10.8.4 Flood Proofing: This is an approach adopted in parts of Bihar, Uttar Pradesh and few other flood prone states of the country for reducing flood vulnerability. Flood proofing involves constructing earthen mounds to raise entire homesteads—the house, the vegetable garden, livestock pen, grain stores, toilets and water wells above the flood level. Encouraging such good practices in other flood prone parts of the country, would go a long way to reduce the risk in such area. 10.8.5 Promoting development of new financial tools:There is needto work for development of new financial tools such as catastrophic risk financing, risk insurance, catastrophic bonds, micro- finance etc. Risk transfer and risk insurance mechanisms would be needed for infrastructure, crops and other assets. Making risk insurance mandatory at least in highly hazard prone states in the country needs to be encouraged. Insurance distributes disaster risk among the broader society and makes great sense when risk has been reduced to some acceptable level. 10.8.6 Agriculture and Aquaculture: These projects should be assessed from the perspective of the flood hazards. Much of the flooding that affects large rural habitats and agricultural lands is because of reduced drainage as a result of the expansion of agricultural activities into wetland areas that previously served an important drainage function. Mainstreaming disaster risk management such development of agriculture practices should have compensatory drainage factored into agricultural expansion plans. 10.8.7 Roads and Infrastructure: Standards are generally set to protect roads, railways, power and communication infrastructure from being damaged or destroyed by a 10 or 20 or 50 year flood level. Any new infrastructure project should conduct a disaster impact analysis and ensure that construction does not impede water flow and cause deeper or prolonged floods. Designing the roads to the higher standards requires factoring of not only the vulnerability of the roads to floods but also their contribution to hazard. 10.8.8 Logging activities: These activities in the hilly areas destabilise slopes, cause landslides and increase mudflow and silting in the nearby rivers. The revenue generated by logging is far lesser than the losses incurred due to the serious problems of landslides, silting and ecological disturbance caused. There should be a plan for afforestation in the logging area before or just after the logging.

198 The Way Forward

Box 10.1: Risk Transfer mechanisms-Insurance as a financial tool for Disaster Management For decades, the financing of disasters has relied on a reactive approach consisting of the diversionof funds from the domestic budgets. Such “ex post” funding approaches are inefficient, often poorly targeted and insufficient. Moreover, they provide no incentive for proactive risk reduction measures such as improved urban planning, higher construction standards, etc. Reactive approaches to risk financing are becoming increasingly unsustainable as vulnerability is increasing and emerging economies grow and accumulate more assets. The funding gaps between available donor resources and post-disaster funding will grow if disaster prone countries do not engage in risk reduction and pre-disaster risk financing. Insurance markets in the majority of developing countries are underdeveloped. Where hazard coverage exists, it is usually limited to major industrial and commercial properties and some wealthier households. For a number of years, efforts are on to promote a more proactive approach to risk financing. A number of examples come from World Bank led efforts, including the provisions of technical support to Mexico in issuing a cat bond; contingency financing arrangements in Cambodia, the Caribbean Catastrophe Risk Insurance Facilities (CCRIF - the first regional institution which allows the eighteen participating countries to pool their risk and save on individual premium payments), the Turkish Catastrophe Insurance Pool (TCIP - a mandatory earthquake insurance pool for homeowners). These initiatives provide much needed, immediate liquidity after a disaster for more effective government response. Micro disaster Insurance: It has great potential, but faces several challenges before it becomes a sustainable mechanism for effective risk management for the poor. The study by ProVention Consortium and the International Institute of Applied System Analysis found that micro Insurance holds great potential to protect the poor from disaster shocks. Financial Viability: Disaster Insurance should be based on sound estimates of low-probability, high-consequence risks so that the premium can be priced and the requisite capital reserve or reinsurance can be assured. Where there is a high degree of ambiguity with the risk estimates of extreme events, international donors may need to provide incentives for the private sector involvement in such schemes.

Affordability: Micro insurance needs to be affordable to low income-clients. Disaster insurance premiums include the costs of handling many small contracts, distributing the product often to remote areas, as well as assuring sufficient capital to cover dependant claims. There are several ways to reduce disaster insurance premiums. The most obvious is subsidies from the public authorities, international donors or those at lower risk in the insurance pool (cross subsidies in insurance systems). The Hungarian government is providing subsidies to poor households as part of a recently legislated flood insurance pool. In the UK, extensive cross subsidies in the private flood insurance systems make it affordable to low income households. In developing countries, transaction costs can be minimised by offering policies to groups or communities through established microfinance institutes. The high costs of capital reserves and reinsurance can be lowered through government or donor provision of reinsurance. An example is the Turkish Catastrophe Insurance Pool, where the World Bank reinsures a layer of risk for the pool.

Source: Reinhard Mechler and Joanne Linnerooth-Bayer with David Peppiatt; Disaster Insurance for the Poor? A review of micro-insurance for natural disaster risks in developing countries, IIASA / ProVention Consortium, 2007

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10.8.9 Design and construction of critical infrastructure and lifeline facilities (hospitals/ schools etc): It has been observed in the past disasters that schools and hospitals are badly affected. Therefore, construction of all new schools and hospital needs to be brought under the regime of disaster resistant technology.

10.8.10 Medical Preparedness for recovery of affected person in any kind of disaster is of paramount importance. There exits huge gap between demand and supply of medical care, particularly in the area of trauma care. This needs to be strengthened and capacity augmented at every level from primary to referral level. The capacity of doctors and Paramedical staff also needs to be strengthened and to be geared to meet the challenges of post-disaster recovery.

10.9 Capacity Building Plan In addition to development of National Human Resource Plan, a training calendar of Disaster Management institutes and agencies at the international, national and sub-national levels needs to be compiled and publicised so that the stakeholders could avail of the opportunities to build capacities. 10.9.1 Concerted efforts are required to work closely with UN agencies, bilateral agencies and NGOs for DRR. Bilateral and Multilateral Cooperation with countries prone to hazard and those having developed expertise in management of different disasters and international institutions for DRR would facilitate and encourage participation of professionals and officials in national and international events in enhancing their capacities. 10.9.2 International collaboration in the field of disaster management should be strengthened. The NDMA and NIDM have to play a key role in awareness generation and engage with print, electronic and folk media to carry forward programmes for public awareness. There is also a great need to develop the capacity and sensitise the media to comprehend disaster awareness and reporting, so that it plays a positive role in creating awareness and in handling disaster information and news during emergencies.

10.9.3 In order to address the issue of structural safety against multi-hazards, steps that lead to improvement of construction on the ground need to be initiated. This would entail enhancing community awareness, capacity building of architects and masons, strengthening of enforcement, etc. 10.9.4 Inter-state sharing of resources has been very effective in the past. Such sharing should be facilitated by encouraging states to enter into mutual agreements with each other on possible nature and type of resources that can be shared and set up administrative mechanisms for implementing these effectively.

10.10 National, State and District Level Response Plans The recent Japanese earthquake, tsunami, followed by fire and the nuclear energy crisis is a pointer to the fact that despite best preparedness and mitigation and capacity building plans being in place, response and crisis management plans continue to be relevant. To put things in place an effective response plans at the National, States, Districts and the Sub-districts level should therefore, be encouraged to strengthen review and update the existing capacity for response and crisis management.

200 The Way Forward

10.11 Corporate Social Responsibility Business entities are expected to shoulder responsibilities for the impact of their activities on the consumers, employees and community as a whole. Efforts are therefore needed to engage corporate bodies in undertaking disaster risk reduction activities as a part of their corporate social responsibilities. NDMA and NIDM have to actively engage with the corporate sector in mainstreaming DRR within their CSR framework. 10.12 Integrating Climate Change and Disaster Risk Reduction The current trends of climate change are expected to increase the frequency and intensity of existing hazards, an increased probability of extreme events, spur the emergence of new hazards and vulnerabilities with differential spatial and socio-economic impacts. This is likely to further degrade the resilience and coping capacities of poor and vulnerable communities, who make up from a quarter to half of the population of most Indian cities Vulnerability has typically contributed more to overall risk in India than hazard exposure. The efforts for integrating climate change and DRR measures needs to be further strengthened and institutionalised and community be sensitised to take up such adaptive measures, which reduces their vulnerability. 10.13 Conclusion The above mentioned initiatives are only an indicative list of actions requiring attention. Every stakeholder involved needs to contribute his bit in order to ensure that the increasing hazards and risks and the vulnerabilities get addressed in a planned and systematic manner, thereby increasing the coping capacities of the communities at large and making them resilient to the impacts of disasters. The Government is committed to structure and convert these requirements into actionable format to place them on a roadmap and source the funding for their implementation.

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Glossary

Acceptable Risk The level of potential losses that a society or community considers acceptable given existing social, economic, political, cultural, technical and environmental conditions.

Adaptation The adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities.

Biological Hazard Process or phenomenon of organic origin or conveyed by biological vectors, including exposure to pathogenic micro-organisms, toxins and bioactive substances that may cause loss of life, injury, illness or other health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental damage.

Building Code A set of ordinances or regulations and associated standards intended to control aspects of the design, construction, materials, alteration and occupancy of structures that are necessary to ensure human safety and welfare, including resistance to collapse and damage.

Capacity The combination of all the strengths, attributes and resources available within a community, society or organization that can be used to achieve agreed goals.

Capacity Development The process by which people, organizations and society systematically stimulate and develop their capacities over time to achieve social and economic goals, including through improvement of knowledge, skills, systems, and institutions.

Climate Change (a) The Inter-governmental Panel on Climate Change (IPCC) defines climate change as: “a change in the state of the climate that can be identified (e.g., by using statistical tests) by changes in the mean and/or the variability of its properties, and that persists for an extended period, typically decades or longer. Climate change may be due to natural internal processes or external forcings, or to persistent anthropogenic changes in the composition of the atmosphere or in land use”. (b) The United Nations Framework Convention on Climate Change (UNFCCC) defines climate change as “a change of climate which is attributed directly or indirectly to human activity that alters the composition of the global atmosphere and which is in addition to natural climate variability observed over comparable time periods”.

Contingency Planning A management process that analyses specific potentialevents or emerging situations that might

202 Glossary threaten society or the environment and establishes arrangements in advance to enable timely, effective and appropriate responses to such events and situations.

Coping Capacity The ability of people, organizations and systems, using available skills and resources, to face and manage adverse conditions, emergencies or disasters.

Corrective Disaster Risk Management * Management activities that address and seek to correct or reduce disaster risks which are already present.

Critical Facilities The primary physical structures, technical facilities and systems which are socially, economically or operationally essential to the functioning of a society or community, both in routine circumstances and in the extreme circumstances of an emergency.

Disaster A serious disruption of the functioning of a community or a society involving widespread human, material, economic or environmental losses and impacts, which exceeds the ability of the affected community or society to cope using its own resources.

Disaster Risk The potential disaster losses, in lives, health status, livelihoods, assets and services, which could occur to a particular community or a society over some specified future time period.

Disaster Risk Management The systematic process of using administrative directives, organizations, and operational skills and capacities to implement strategies, policies and improved coping capacities in order to lessen the adverse impacts of hazards and the possibility of disaster.

Disaster Risk Reduction The concept and practice of reducing disaster risks through systematic efforts to analyse and manage the causal factors of disasters, including through reduced exposure to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness for adverse events.

Disaster Risk Reduction Plan * A document prepared by an authority, sector, organization or enterprise that sets out goals and specific objectives for reducing disaster risks together with related actions to accomplish these objectives.

Early Warning System The set of capacities needed to generate and disseminate timely and meaningful warning information to enable individuals, communities and organizations threatened by a hazard to prepare and to act appropriately and in sufficient time to reduce the possibility of harm or loss.

203 Disaster Management in India

Ecosystem Services The benefits that people and communities obtain from ecosystems. ecosystems can provide include “regulating services” such as regulation of floods, drought, land degradation and disease, along with “provisioning services” such as food and water, “supporting services” such as soil formation and nutrient cycling, and “cultural services” such as recreational, spiritual, religious and other non-material benefits. Integrated management of land, water and living resources that promotes conservation and sustainable use provide the basis for maintaining ecosystem services, including those that contribute to reduced disaster risks.

El Niño-Southern Oscillation Phenomenon A complex interaction of the tropical Pacific Ocean and the global atmosphere that results in irregularly occurring episodes of changed ocean and weather patterns in many parts of the world, often with significant impacts over many months, such as altered marine habitats, rainfall changes, floods, droughts, and changes in storm patterns.

Emergency Management The organization and management of resources and responsibilities for addressing all aspects of emergencies, in particular preparedness, response and initial recovery steps.

Emergency Services The set of specialized agencies that have specific responsibilities and objectives in serving and protecting people and property in emergency situations. Environmental Degradation The reduction of the capacity of the environment to meet social and ecological objectives and needs. Environmental Impact Assessment Process by which the environmental consequences of a proposed project or programme are evaluated, undertaken as an integral part of planning and decision-making processes with a view to limiting or reducing the adverse impacts of the project or programme. Exposure People, property, systems, or other elements present in hazard zones that are thereby subject to potential losses. Extensive Risk * The widespread risk associated with the exposure of dispersed populations to repeated or persistent hazard conditions of low or moderate intensity, often of a highly localized nature, which can lead to debilitating cumulative disaster impacts. Forecast Definite statement or statistical estimate of the likely occurrence of a future event or conditions for a specific area. Geological Hazard Geological process or phenomenon that may cause loss of life, injury or other health impacts,

204 Glossary property damage, loss of livelihoods and services, social and economic disruption, or environmental damage. Greenhouse Gases Gaseous constituents of the atmosphere, both natural and anthropogenic, that absorb and emit radiation of thermal infrared radiation emitted by the Earth’s surface, the atmosphere itself, and by clouds. Hazard A dangerous phenomenon, substance, human activity or condition that may cause loss of life, injury or other health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental damage. Hydrometeorological Hazard Process or phenomenon of atmospheric, hydrological or oceanographic nature that may cause loss of life, injury or other health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental damage. Intensive Risk * The risk associated with the exposure of large concentrations of people and economic activities to intense hazard events, which can lead to potentially catastrophic disaster impacts involving high mortality and asset loss. Land-use Planning The process undertaken by public authorities to identify, evaluate and decide on different options for the use of land, including consideration of long term economic, social and environmental objectives and the implications for different communities and interest groups, and the subsequent formulation and promulgation of plans that describe the permitted or acceptable uses. Mitigation The lessening or limitation of the adverse impacts of hazards and related disasters. Preparedness The knowledge and capacities developed by governments, professional response and recovery organizations, communities and individuals to effectively anticipate, respond to, and recover from, the impacts of likely, imminent or current hazard events or conditions. Prevention The outright avoidance of adverse impacts of hazards and related disasters. Prospective Disaster Risk Management * Management activities that address and seek to avoid the development of new or increased disaster risks. Public Awareness The extent of common knowledge about disaster risks, the factors that lead to disasters and the

205 Disaster Management in India actions that can be taken individually and collectively to reduce exposure and vulnerability to hazards. Recovery The restoration, and improvement where appropriate, of facilities, livelihoods and living conditions of disaster-affected communities, including efforts to reduce disaster risk factors. Residual Risk The risk that remains in unmanaged form, even when effective disaster risk reduction measures are in place, and for which emergency response and recovery capacities must be maintained. Resilience The ability of a system, community or society exposed to hazards to resist, absorb, accommodate to and recover from the effects of a hazard in a timely and efficient manner, including through the preservation and restoration of its essential basic structures and functions. Response The provision of emergency services and public assistance during or immediately after a disaster in order to save lives, reduce health impacts, ensure public safety and meet the basic subsistence needs of the people affected. Retrofitting Reinforcement or upgrading of existing structures to become more resistant and resilient to the damaging effects of hazards. Risk The combination of the probability of an event and its negative consequences. Risk Assessment A methodology to determine the nature and extent of risk by analysing potential hazards and evaluating existing conditions of vulnerability that together could potentially harm exposed people, property, services, livelihoods and the environment on which they depend. Risk Management The systematic approach and practice of managing uncertainty to minimize potential harm and loss. Risk Transfer The process of formally or informally shifting the financial consequences of particular risks from one party to another whereby a household, community, enterprise or state authority will obtain resources from the other party after a disaster occurs, in exchange for ongoing or compensatory social or financial benefits provided to that other party. Socio-natural Hazard * The phenomenon of increased occurrence of certain geophysical and hydro meteorological hazard events, such as landslides, flooding, land subsidence and drought, that arise from the interaction of natural hazards with overexploited or degraded land and environmental resources.

206 Glossary

Structural Measures Any physical construction to reduce or avoid possible impacts of hazards, or application of engineering techniques to achieve hazard-resistance and resilience in structures or systems; Non-structural Measures Any measure not involving physical construction that uses knowledge, practice or agreement to reduce risks and impacts, in particular through policies and laws, public awareness raising, training and education.

Sustainable Development Development that meets the needs of the present without compromising the ability of future generations to meet their own needs.

Technological Hazard A hazard originating from technological or industrial conditions, including accidents, dangerous procedures, infrastructure failures or specific human activities, that may cause loss of life, injury, illness or other health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental damage.

Vulnerability The characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard. *emerging concepts For details on Glossary refer www.unisdr.org

207 Disaster Management in India

Footnotes

1 Dictionary.reference.com 2 Dictionary.reference.com 3 World Bank Development Report (2000-2001) 4 Centre for Research on Epidemiology of Disaster:; #Centre for Research on Epidemiology of Disasters (CRED) EM-DAT, Belgium; *Department of Disaster Management, Government of Bihar; **Department of Relief & Rehabilitation, Government of Maharashtra 5 Dr. R. K. Mall, Ex. Associate Professor, NIDM 6 Dr. R. Mall, Ex. Associate Professor, NIDM 7 Indian Meteorological Department - 2010 (Weather Report) 8 Dr. R. K. Mall, Ex. Associate Professor, NIDM 9 Dr. R.K. Mall ,Ex. Associate Professor, NIDM 10 MDAT - Dr. R. K. Mall, Ex. Associate Professor, NIDM 11 EMDAT - Dr. R. K. Mall, Ex. Associate Professor, NIDM 12 IMD Disastrous weather Events annual reports 13 Dr. R. K. Mall, Ex. Associate Professor, NIDM 14 Dr. R.K. Mall, Ex. Associate Professor, NIDM 15 Ministry of Environment and Forest (MOEF) 16 Indian National Centre for Oceanic Information System (IMCOIS) 17 Indian National Centre for Oceanic Information System (INCOISE) 18 Mr. Arun Shah Deo, NIDM 19 Bhaba Atomic Research Centre (BARC), Mumbai 20 Transport Research Wing, Ministry of Road Transport & Highways, GOI, 2008 21 Safety Railway Board, Ministry of Railways 22 Directorate General of Civil Aviation (DGCA) 23 Directorate General, Mines Safety, Dhanbad 24 National Centre for Disease Control (NCDC) 25 National Crime record Bureau (NCRB) 26 Drought Relief Manual Ministry of Agriculture (DAC) 27 Central Water Commission (CWC) 28 Indian National Centre for Oceanic Information system (INCOIS) 29 Defence Research & Development Organization (DRDO) 30 Indian Space Research Organization (ISRO) 31 International Strategy for Disaster Reduction

208 References

1. Natural Hazards, Unnatural Disasters Economics of Effective Disaster Prevention by United Nations and World Bank, 2010. 2. Mall R. K., A. Gupta, R, Singh and L. S. Rathore, 2006, ‘Water Resources and Climate Change-An Indian Perspective’, Current Science, 90, 12, 1610-1626. 3. Mega Disaster in a Resilient Society-The Great East Japan (Tohoku Kanto) Earthquake and Tsunami of 11th March 2011 - SYNTHESIS AND INITIAL OBSERVATIONS, International Environment and Disaster Management Graduate School of Global Environmental Studies Kyoto University 25th March, Japan 2011. 4. Disastrous weather Events annual reports, IMD, 1968 -77 Extreme Weather Events over India in the last 100 years; De U.S., Dube R K and Prakasa Rao G S, J. IND. GEOPHYS. UNION, Vol.9, No.3, pp.173-187, 2005. 5. Climate change and Disasters in India; Mall R K, R Kumar and R Bhatla, 2010: Journal of South Asia Disaster Studies, SAARC Disaster Management Centre, New Delhi (in press). 6. Crisis Management from Despair to Hope, Third Report- Second Administrative Reforms Commission, September 2006, New Delhi. 7. Report of Working Group on Disaster Management for the Eleventh Five year Plan (2007-2012), Department of Planning Commission, December 2006, New Delhi. 8. The Report of the High Powered Committee on Disaster Management in India, National Centre for Disaster Management, Indian Institute of Public Administration. 9. Disaster Reduction in United Nations 2011, Roles mandates areas of work of Key United Nations entities (ISDR). 10. Transport Research Wing, Ministry of Road Transport and Highways, Government of India, 2008. 11. A Global Report: Reducing Disaster Risk - a Challenge for Development by UNDP (BCPR), 2004 12. Program of Enhancement of Emergency Response (PEER), PEER Stage 3 (2009-2014) objective 3 Report on India (As of February 28, 2011) by NSET, Nepal.

209 Disaster Management in India

Abbreviations and Acronyms

AAI Airport Authority of India A & NI Andman & Nicobar Island AASC Assam Administrative Staff College ACA Additional Central Assistance ACD Anti Collision Device ADB Asian Development Bank ADPC Asian Disaster Preparedness Centre ADRC Asian Disaster Reduction Centre AERB Atomic Energy Regulatory Board AGM Assistant General Manager AICTE All India Council for Technical Education AIDS Acquired Immune Deficiency Syndrome AIM Anna Institute of Management AJL Ahmedabad Janmarg Limited AMC Ahmedabad Municipal Corporation AMCDRR Asian Ministerial Conference on Disaster Risk Reduction AMR-APARD AMR-Andhra Pradesh Academy of Rural Development ARF Asean Regional Forum ARG Automatic Rain Gauge ART Accident Relief Trains ASAR Advance Search & Rescue ATI Administrative Training Institute AUWSP Accelerated Urban Water Supply Programme AWS Automatic Weather Station BAPMoN Background Air Pollution Monitoring Network BARC Bhabha Atomic Research Centre BIDR Border Security Force Institute of Disaster Response BIPA&RD Bihar Institute of Public Administration & Rural Development BIS Bureau of Indian Standard BMPTC Building Material & Technology Promotion Council BoT Board of Trustees BRGF Backward Regions Grant Fund

210 BRTS Bus Rapid Transit System BSF Border Security Force BTC Basic Training Centre CADRE Community Action for Disaster Response CBRN Chemical, Biological Radiological and Nuclear CBSE Central Board of Secondary Education CCA Climate Change Adaptation CCRIF Caribbean Catastrophe Risk Insurance Facilities CDM Centre for Disaster Management CEO Chief Executive Officer CERTI Central Emergency Relief Training Institute CISF Central Industrial Security Force CM Chief Ministry CMG Crisis Management Group CMIP Crisis Management Plan CoE Centre of Excellence CPWD Central Public Works Department CR Central Railways CRED Centre for Research on the Epidemiology of Disasters CRIDA Central Research Institute for Dry Land Agriculture CRPF Central Reserve Police Force CS Chief Secretary CSIAA Chhattisgarh State Institute Academy of Administration CSO Chief Security Officer CSO Central Statistical Organization CSSR Collapsed Structure Search & Rescue CTC Central Training College CWC Central Water Commission CWDS Cyclone Warning Dissemination System DAC Department of Agriculture & Cooperation DAE Department of Atomic Energy DAT Distress Alert Transmitter DC District Collector DDMA District Disaster Management Authority

211 Disaster Management in India

DDP Desert Development Programme DDUSIRD Deen Dayal Upadhyaya State Institute of Rural Development DDWS Digital Disaster Warning System DEA Department of Economic Affairs DGCA Directorate General Civil Aviation DGMS Directorate General of Mines Safety DIG Director Inspector General DM Disaster Management DM District Magistrate DMC Disaster Management Community DMD Disaster Management Department DMI Disaster Management Institute DMS Disaster Management Support DMSAR Airborne SAR for Disaster Management DMT Disaster Management Team DOS Department of Space DOT Directorate of Training DPAP Drought Prone Area Programme DPR Detailed Project Report DRDE Defence Research & Development Establishment DRDO Defence Research & Development Organization DRM Disaster Risk Management DRR Disaster Risk Reduction DSC Decision Support System DTR Diurnal Temperature Range DWR Doppler Weather Radar EAP Externally Aided Programme ECIL Electric Corporation of India Limited ECR East Central Railways EM-DAT Emergency Database ENSO El Nino-Southern Oscillation EOC Emergency Operation Centres ERF Environmental Relief Fund ERRP Earthquake Risk Reduction and Recovery Preparedness

212 EWS Early Warning System FAO Food and Agriculture organisation FI Fire Institute FLC Fishing Landing Centre FMP Flood Management Planning GAA Gopabandhu Academy of Administration GAW Global Atmosphere Watch Stations GBPIHED G.B. Pant Institute of Himalayan Environment & Deptt GDP Gross Domestic Product GFDRR Global Facility for Disaster Risk Reduction GHG Greenhouse Gases GIDM Gujarat Institute of Disaster Management GIS Geographic Information Systems GLIDE Global Unique Disaster Identifier Number GM General Manager GOI Government of India GSI Geological Survey of India GSLV Geosynchronous Satellite Launch Vehicle H5N1 Highly Pathogenic Avian Influenza Virus HCMRIPA Harish Chandra Mathur Rajasthan Institute of Public Administration HFA Hyogo Framework of Action HFL Highest Flood Level HIPA Haryana Institute of Public Administration HIV Human Immuno Deficiency Virus HLC High level Committee HOPE Hospital Preparedness for Emergencies HPIPA Himachal Pradesh Institute of Public Administration HRD Human Resource Development HUDCO Housing and Urban Development Corporation I & B Information and Broadcasting IAS Indian Administrative Service ICAO International Civil Aviation Organization ICAR Indian Council of Agricultural Research ICMR Indian Council of Medical Research

213 Disaster Management in India

ICRISAT International Crop Research for Semi-arid Tropics ICS Incident Command System ICZM Integrated Coastal Zone Management Project IDMC India Disaster Management Congress IDNDR International Decade for Natural Disaster Reduction IDSMT Integrated Development of Small and Medium Towns IDSP Integrated Disease Surveillance Project IEC Information, Education and Communication IFAD International Fund for Agriculture Development IFRC International Federation of Red Crescent IFS Indian Forest Service IGNOU Indira Gandhi National Open University IIPA Indian Institute of Public Administration IIRS Indian Institute of Remote Sensing IIT Indian Institute of Technology ILM Institute of Land Management ILO International Labour Organisation IMD Indian Meteorological Department IMG Inter Ministerial Group INCOIS Indian National Centre for Oceanic Information System INSARAG International Search and Rescue advisory Group INSAT Indian National Satellite System INSWIT INDO-SWISS Collaboration for Training IPCC Intergovernmental Panel on Climate Change IPS Indian Police Service IR Internal Review IRC India-Russia-China IRS Indian Remote Sensing Satellites ISDR International Strategy for Disaster Reduction ISRO Indian Space Research Organization ITBP Indo-Tibetan Border Police The J&K Institute of Management, Public Administration and Rural J&K IMPARD Development

JICA Japan International Cooperation Agency

214 JNNURM Jawaharlal Nehru National Urban Renewal Mission JST Japan Standard Time LBSNAA Lal Bhadur Sashtri National Academy of Administration LPA Long Period Average MAH Major Accident Hazards MCE Mass Casualty Event MCR HRDI Dr. Marri Channa Reddy Human Resource Development Institute MFR Medical First Responder MGSIPA Mahatma Gandhi State Inst. of Public Administration MHA Ministry of Home Affairs MHRD Ministry of Human Resource Development MIC Methyl Iso Cynate MNES Ministry of Non-conventional Energy MoA Ministry of Agriculture MoCA Ministry of Civil Aviation MoD Ministry of Defence MoEF Ministry of Environment and Forest MoES Ministry of Earth Sciences MoH & FW Ministry of Health and Family Welfare MoRTH & S Ministry of Road Transport and Highways and Shipping MPC Mitigation Plan Committee MSK Medvedev-Sponheuer-Karnik MST Ministry of Science & Technology MWR Ministry of Water Resources NAPAAM Tezpur University, Tezpur, NAPAAM NAPCC National Action Plan on Climate Change NARL National Atmospheric Research Laboratory NBC Nuclear Biological and Chemical NBC National Building Code of India NCC National Cadet Corps NCCF National Calamity Contingency Fund NCDC National Civil Defence College NCERT National Council for Educational research and Training NCMC Natural Crisis Management Committee

215 Disaster Management in India

NCR National Capital Region NCRMP National Cyclone Risk Mitigation Project NDEM National Database for Emergency Management NDMA National Disaster Management Authority NDMF National Disaster Mitigation Fund NDRF National Disaster Response Fund NDRF National Disaster Response Force NEC National Executive Committee NEOC National Emergency Operation Centre NER North Eastern Railways NERMP National Earthquake Risk Mitigation Project NE-SAC North Eastern-Space Applications Centre NFR North East Frontier Railways NFRMP National Flood Risk Mitigation Project NFSC National Fire Service College NGO Non Governmental Organisation NICD National Institute of Communicable Disease NIDM National Institute of Disaster Management NIOT National Institute of Ocean Technology NISA National Industrial Security Academy NITSRDR National Institute for Training in Search, Rescue and Disaster Response NLRMP National Landslide Risk Mitigation Project NPDM National Policy on Disaster Management NPP Nuclear Power Plan NR Northern Railways NREGS National Rural Employment Guarantee Scheme NRSA National Remote Sensing Agency NRSC National Remote Sensing Centre NSS National Service Scheme NVBDCP National Vector Borne Diseases Control Programme NYKS Nehru Yuva Kendra Sangathan OASTC Ocean and Atmospheric Science & Technology Cells ODA Official Development Assistance OECD Organisation for Economic Cooperation and Development

216 OFDA Office of U.S. Foreign Disaster Assistance OHE Overhead Equipment PEER Programme for Enhancement of Emergency Response PLI Act Public Liability Insurance Act PMO Prime Minister's Office PRI Panchayati Raj Institutes PRL Physical Research Laboratory PSLV Polar Satellite Launch Vehicle R & D Research and Development RCC Regional Consultative Committee RDD Radiological Dispersal Device RDSO Research, Design and Standard Organisation RISAT Spaceborne Radar Imaging Satellite RNBC Radiological, Nuclear, Biological & Chemical disasters ROB Road Over Bridges RPF Railways Protection Force RS Radiosonde RSMC Regional Specialized Meteorological Centre RSMC Regional Specialized Meteorological Centre RTI Regional Training Institute RUB Road Under Bridges RW Radiowing SA Sentinel Asia SAARC South Asian Association for Regional Cooperation SAR Synthetic Aperture Radar SAR Search And Rescue SARPs Standard and Recommended Practices SASE Snow and Avalanche Study Establishment SAT State Academy of Training SCL Semi-Conductor Laboratory SCMG State Crisis Management Group SCR South Central Railways SCZMC SAARC Coastal Zone Management Centre SDC Swiss Agency for the Development and Cooperation

217 Disaster Management in India

SDF Self Defence Force SDMA State Disaster Management Authority SDMC SAARC Disaster Management Centre SDRF State Disaster Response Force SDRF State Disaster Response Fund SEC State Executive Committee SECR South East Central railways SFAC Standing Fire Advisory Council SIPARD State Institute of Public Administration & Rural Development SIRD State Institutes for Rural Development SKIPA Shri Krishna Institute of Public Administration SMRC SAARC Metrological Research Centre SMS Safety Management Systems SOP Standard Operating Systems SPARMV Self Propelled Accident Relief Medical Van SPART Self Propelled Accident Relief Trains SPURT Self-Propelled Ultrasonic Rail Testing SRFF Standby Recovery Financing Facility SRSF Special Railway Safety Fund SSA Sarva Siksha Abhiyaan SST Sea Surface Temperatures SW South West SWR South Western Railways TAWD Train Actuated Warning Device TCAC Tropical Cyclone Advisory Centre TCIP Turkish Catastrophe Insurance Pool TDPSI TOT in Disaster psycho-social Intervention TEWS Tsunami Early Warning System TOT Training of Trainers TRP Tsunami Reconstruction Programme TVU Train Vehicle Units UAA Uttarakhand Academy of Administration UD Urban Development

218 An Overview

UIDSSMT Urban Infrastructure Development Scheme for Small and Medium Towns ULB Urban Local Bodies UNDAC United Nations Disaster Assessment and Coordination UNDG United Nations Development Group UNDP United Nations Development Programme UNEP United Nations Environment Programme UN-ESCAP United Nations Economic and Social Commission for Asia and the Pacific UNESCO United Nations Educational, Scientific and Cultural Organisation UNFCCC United Nations Framework Convention on Climate Change UNICEF United Nations Children's Fund UNISDR United Nations for International Strategy for Disaster Reduction UNO United Nations Organisations UNOCHA United Nation office for Coordination of Humanitarian Affairs UPAAM Uttar Pradesh Academy of Administration & Management URR Urban Risk Reduction USA United States of America USAID United States Agency for International Development USAR Urban Search & Rescue UT Union Territory VOS Voluntary Observing Ships VPN Virtual Private Network WFP World Food Programme WHO World Health Organisation WILD Wheel Impact Load Detector WMO World Metrological Organisation WR Western Railways YCADA Yashwantrao Chavan Academy of Development Administration

219 Disaster Management in India

Tables, Boxes and figures

Tables Table 1.1 World’s Deadliest Disaster 4 Table: 1.2 India’s Deadliest Disasters 5 Table 1.3 Event of Disasters globally in between 1900 - 2009 7 Table 1.4 People affected, lives lost and economic damage due to Disasters in 9 India between 1980 to 2010 Table 1.5 Year-wise damage caused due to floods, cyclonic storm, landslides etc. 10 during last ten years in India Table 1.6 Worldwide view of damage caused by Natural disasters 16 Table 1.7 Drought years with percentage area of the country affected by drought 17 Table 1.8 Flood affected areas and damages in India (1953 to 2004) 20 Table 1.9 Major Cyclones of India and Bangladesh 23 Table 1.10 Number of Heat Waves in India 24 Table 1.11 Deaths due to Heat Waves in India 24 Table 1.12 Number of Cold Waves in India 25 Table 1.13 Past Incidences of Tornadoes 26 Table 1.14 Some Significant Earthquakes in India 28 Table 1.15 Year wise Chemical Disasters for past decade 31 Table 1.16 Tsunami travel time 35 Table 1.17 Major Stampedes in India - 2005-2010 40 Table 1.18 Incidents in Nuclear Facilities in India 41 Table 1.19 Number of Accidents and Number of Persons Involved : 2001 to 2008 42 Table 1.20 All India Share of Select States (in %): Road Accidents and Registered 43 Motor Vehicles Table 1.21 Number of Accidents, persons killed & injured as per road classification 43 (2008) Table 1.22 Train Accidents in India between 1999-2009 44 Table 1.23 Accidents to Indian Civil Registered Aircraft from 1990 to 2000 45 Table 1.24 Detail of Disasters (more than 10 fatalities) in Coal Mines during 1901- 47 2010 in India Table 1. 25 Detail of Disasters (more than 10 fatalities) in Non-Coal Mines during 48 1901- 2010 Table 1.26 Major accidents (more than four fatalities) in mines – cause wise (1901- 49 2010) Table 1.27 Disease-wise outbreaks/epidemics reported by states under IDSP, 50 2008-10 Table 1.28 Incidence, Share & Rate of Accidental Deaths by Causes Attributable to 51 Nature and Un-Natural Causes during 2008 & 2009

220 Table 3.1 Convenor - Nodal Ministry/Department for Management/Mitigation of 72 Different Disasters Table 3.2 Rules notified under DM Act, 2005 77 Table 4.1 Comparison among India, Japan & USA on death in Earthquake of 81 similar magnitude Table 4.2 Components of the Scheme for Strengthening of Fire and Emergency 94 Service Table 4.3 The activity-wise progress of Fire Service Scheme (March 2011) 94 Table 4.4 List of Multi-Hazard Districts 95 Table 5.1 Model error of the April forecasting systems 105 Table 5.2 NDRF : Response Activities 120 Table 6.1 Action Plan for Rehabilitation of Government of Madhya Pradesh 129 Table 6.2 Loss in Tsunami 2004, India 132 Table 6.3 Rajiv Gandhi Rehabilitation Package 134 Table 6.4 Status of Rehabilitation (as on 30th June 2010) 134 Table 6.5 Shelter construction in Leh (As on 23-11-2010) 140 Table 7.1 Mock Exercises conducted by NDMA from 1.4.2009 to 31.3.2010 147 Table: 7.2 Capacity building of PRIs: Capacity Building Project (in Partnership with 147 IGNOU) and States. Table 7.3 Disaster Management Centers in the State 149 Table 7.4 Centres of Excellence 151 Table 7.5 Location of Training centres 151 Table 7.6 Details of the Courses for NDRF 151 Table 7.7 Status of Training 152 Table 7.8 Trainer developed by PEER instructors 153 Table 7.9 Responders developed by PEER Instructor 154 Table 7.10 State-wise list of Community Capacity Development & Public 154 Awareness Table 7.11 Courses conducted by NCDC 156 Table 8.1 State-wise Allocation of State Disaster Response Fund 164 Table 8.2 State-wise Grant Allocation for Capacity Building for Disaster Response 166 Table 8.3 State-wise Grant Allocation for Revamping of Fire Services 167 Table 8.4 State-wise Allocations of Grants in Aid 169 Table 8.5 State-wise Allocations of Grants in Aid 170 Table 8.6 Year-wise Allocations of Grants in Aid 171 Table 8.7 State-wise Allocations of Grants in Aid 172 Table 8.8 Major Activities 173 Table 8.9 State-wise Allocations of Grants in Aid 173 Table 9.1 Involvement of other UN agencies on Disaster Risk Reduction (DRR) 185

221 Disaster Management in India

Boxes

Box 1.1 List of various Disasters 2 Box 1.2 Examples of extreme weather events 16 Box 1. 3 Historical Tsunamis in India 32 Box 1. 4 Tsunami in Indian Ocean 32 Box 1.5 Cascading effect of Disaster – Earthquake, Tsunami, fire and nuclear 35 disaster: Japan Experience Box 4.1 Building collapse in Lalita Park, Laxmi Nagar, Delhi 84 Box 4.2 National Cyclone Risk Mitigation Project 87 Box 4.3 Integrated Coastal Zone Management Project 87 Box 4.4 Flood Management Programme 89 Box 4.5 Measures by Japan 91 Box 5.1 Disaster wise nodal agencies for Forecast 103 Box 5.2 The port/land crossing identified for the purpose of installation of RDE 111 Box 5.3 Guidelines on Preparedness/Response- (Checklist for preparedness by 113 state/district agency) Box 5.4 Rescue and relief measures leading to further disasters - Tamil Nadu 119 experience Box 6.1 Guiding Principles for Post- Recovery 125 Box 6.2 Kosi Flood Reconstruction And Rehabilitation Programme 137 Box 6.3 Recovery an Opportunity 140 Box 7.1 Status of Programme of Civil Defence as on March 2011 157 Box 8.1 Public Liability Insurance Act, 1991 167 Box 9.1 Ministries designated for HFA initiatives 176 Box 9.2 Development Objective at Global, Regional and National Level 181 Box 9.3 GOI-UNDP Disaster Risk management Programme 182 Box 9.4 PEER Hierarchy of Training for MFR-CSSR Stream 189 Box 9.5 Achievements made under USAID project 190 Box 10.1 Risk Transfer mechanisms-Insurance as a financial tool for Disaster 199 Management

222 Figures Figure 1.1 Regional Distributions of Disasters by Type 3 Figure 1.2 Global Disaster Scenario: Distribution of Natural Disasters 6 Figure 1.3 Distribution of People Affected 7 Figure 1.4 Event of Disasters globally in between 1900 - 2009 8 Figure 1.5 Disaster Events (1900-2009) 8 Figure 1.6 Disaster Death (1900 - 2009) 8 Figure 1.7 Major disasters in India from 1980-2010 10 Figure 1.8 Multi Hazard Map of India 12 Figure 1.9 INDIA - Losses Due to Disasters 13 Figure 1.10 IPCC estimates of climate change 13 Figure 1.11 Flood hazard map of India 19 Figure 1.12 Cyclone Hazard Map 22 Figure 1.13 Earthquake hazard map of India 27 Figure 1.14 Landslide hazard zones in India 30 Figure 1.15 Potential Tsunamigenic zones 33 Figure 1.16 Tsunami travel times & response time 34 Figure 1.17 Graphic presentation showing number of accidents and person killed 42 (2001-2008) Figure 1.18 No. of Accidents as per road classification in 2008 43 Figure 1.19 No. of Persons Killed as per road classification in 2008 43 Figure 1.20 Graphical presentation of Train accident: number of accidents and 45 deaths (1999-2009) Figure 1.21 Unnatural deaths in 2009- Causes, Number and as a percentage of the 53 Total deaths (357,021) Figure 2.1 National Disaster Management Structure 56 Figure 2.2 Legal Institutional Framework 58 Figure 2.3 Disaster Management Structure in India 60 Figure 2.4 Governing Body of National Institute of Disaster Management 61 Figure 2.5 Organisational Structure of NIDM 62 Figure 2.6 Location of NDRF Battalions 63 Figure 2.7 Details of the NDRF Battalions 64 Figure 2.8 Interface among the stakeholders, leading to the development of society 69 Figure 5.1 Response set up across the country 115 Figure 7.1 PEER MFR and CSSR Graduates in India 153 Figure 7.2 PEER MFR and CSSR Instructors in India 153 Figure 8.1 Allocation made by Finance Commission towards erstwhile calamity 163 Relief Fund

223 Disaster Management in India

Important Telephone Numbers

A. Disaster Management Division (Ministry of Home Affairs)

S. No. Name / Designation Telephone Fax 1. Shri P Chidambaram, 011-23092462 011-23094221 Home Minister 011-23092631 2 Shri Mullappally Ramachandran, 011-23093235 011-23094896 Minister of State 011-23092595 3 Shri Gopal K Pillai 011-23092989/23093031 011-23093003 Home Secretary 23013058 (R) 4 Shri A E Ahmad, 011-23092440 (o) 011-23092717 Secretary (Border Management) 011-24602518 (R) 5 Shri R K Srivastava 011-24638206 011-24610906 Joint Secretary (DM) 6 Shri Dev Kumar, 011-24642853 (O) 011-24642853 Director (DM-I) 011-26266708 (R) 7 Shri J P Misra, 011-24622543 011-24622543 Director (DM-II) 8 Shri Sanjay Agarwal, 011-24642381(O) 011-24641559 Director (DM-III) 9 Shri Om Prakash, 011-24642379 011-24603033 Technical Officer (DM-I) 10 Mrs Promilla Sen Gupta, Under Secretary 011-24640391 011-24640391 (DM-II) 11 Shri Ashok Shukla, 011-24640391 011-24640391 Under Secretary (DM-III) 011-23812646(R) 12 Shri Vishwanathan, 011-24691941 011-24691941 Under Secretary 13 Control Room 011-23093563-66 011-23093750 B. National Disaster Management Authority (NDMA) Name Tel (office) Fax 1 Shri M Shashidhar Reddy, 011-26701701 011-26701706 Vice Chairman 2 Dr. Noor Mohammed 011-26701710 011-26161106 Secretary, NDMA 3 Ms Sujata Saunik, 011-26701867 011-26701820 Joint Secretary (Adm & NDRF) 4 Shri Amit Jha 011-2670 1718 011-26701717 Joint Secretary (Policy & Plan), 5 Dr. P K Tripathi 011-26701816 011-26701820 Joint Secretary (Mitigation) 6 Control Room 011-26105912 011-26701729

224 C. Members / Alternate Members of the National Crisis Management Committee (NCMC)

S.No. Name/Designation & Telephone Numbers Alternate Members of the Member 1 Shri KM Chandrasekhar Cabinet Secretary Tel : 011-2301 6696/23011241, Fax: 011-2301 8638 Res : 011-23013272/23012494

2 Shri T K A Nair Shri Sanjay Mitra Principal Secretary to PM Joint Secretary to PM Tel : 011-2301 3040, Tel : 011-2301 8876 Fax: 011-23017475 Fax : 011- 2301 6857 Res : 011-2338 4230 Res : 011-26277609

3 Shri Gopal K Pillai Shri AE Ahmad Home Secretary Secretary(Border Management) Tel : 011-2309 2989/2309 3031 Tel : 011-2309 2440 Fax : 2309 3003 Fax : 011-2309 2717 Res : 2301 3058 Res : 011-24602158

4. Shri Pradeep Kumar Shri RK Mathur Defence Secretary Additional Secretary, MOD Tel : 011-23012380 Tel : 011-2301 7678 Fax: 011-23010044 Fax : 011-2301 9658 Res : 011-23014489 Res : 2467 1294

5. Shri Ajit Seth Dr. Mrutyunjay Sarangi Secretary (Coordination) Special Secretary Cabinet Secretariat Cabinet Secretariat Tel : 011-2301 2697 Tel : 011-2301 7075 Fax : 2301 8470 Fax : 2301 8949 Res : 2338 8215 Res : 2626 5595

6 Shri Rahul Dua Director (Security) Tel : 2309 3648 Res : 2567 1048

7 Ms. Vijaya Latha Reddy Shri H.Upadhyay Deputy NSA & Secretary Chairman JIC National Security Council Secretariat National Security Council Sectt. Tel : 011- 2334 5287 Tel : 011-2334 9314 Fax : 2374 2811 Fax : 011-2334 9314 Res : 24129585 Res : 011-2687 2464

8 Shri Nehchal Sandhu Shri Ajit Lal Director, IB Special Director IB Tel : 2309 3330/23092892 Tel : 23093492/26872431 Fax : 23093117 Fax : 23093492 Res 23012252/23012161 Res : 26872289

225 Disaster Management in India

S.No. Name/Designation & Telephone Numbers Alternate Members of the Member 9 Shri S.K. Tripathi Shri A.K. Arni Secretary (R) Cabinet Sectt. Special Secretary Cabinet Sectt. Tel : 2379 6470/2379 6647 Tel : 23796562 Fax : 2379 6462 Fax : 23796848 Res : 2338 5900 Res : 26267028 10 Dr. Noor Mohammed Shri Amit Jha Secretary, NDMA Joint Secretary (Plan & Policy), NDMA Tel : 2670 1710/26701711 Tel : 2670 1718 Fax : 2670 1716 Fax : 26701717 Res : 26876622 11 Shri Raghu Menon Shri D.P. Reddy Secretary Joint Secretary (F P&A) I&B Ministry of Information & Broadcasting Tel : 2338 4453 Tel : 2338 2639/2338 6530 Fax : 23387823 Fax : 2338 3513 Res : 2464 7424 Res : 2410 6252 D. National Disaster Response Force (NDRF) Name Tel (office) Fax 1 Shri Rajiv, DG 011-26712851, 011- 011-26715303 24101450 2 Shri Mukul Goel, IG 011-26160252 3 Shri J K S Rawat, DIG 011-26105910 4 Control Room 011-26107953 011-26105912 D.1. NDRF Battalions 1st Commandant (BSF) Kamrup (Assam) 0361-2841464 09435545951 0361-2840284 2nd Commandant (BSF) Kolkata 033-25264394 09434742836 033-25264394 3rd Commandant (CISF) Mundali 0671-2879710 09437964571 0671-2879710 (Orissa) 4th Commandant (CISF) Vellore (TN) 04177-246269 09442105069 04177-246269 04177-246233 5th Commandant (CRPF) Pune 02114-231245 09423506765 02114-231245 (Maharashtra) 02114-231509 6th Commandant (CRPF) Gandhinagar 079-23262540 09427304100 079-23262587 (Gujarat) 079-23262587 09427304218 079-23262549 7th Commandant (ITBP), Bhatinda 0164-2246030 09417802031 0164-2246269 (Punjab) 8th Commandant (ITBP), Gautum Budh 0120-2935114 09968610011 0120-2351087 Nagar NOIDA 9th Commandant, (BSF) 06115-253939 09968659905 06115-253939 Bhita Distt, Patna 08986909490 10th Commandant, 01955253013 09419217790 01955252646 Malkanagiri, Vijayawada (AP)- 01955252646 Proposed

226 E. National Institute of Disaster Management Tel.: 011-23702432, 23705583, 23766146 TeleFax: 011-23702442, 23702446 F. Nodal/Alternate Officers of Central Nodal Ministries/Departments Tel (O) Mobile Fax Res. Ministry of Agriculture Shri Atanu Purkayastha 011-2338 1503 9899772227 011-2338 7669 Joint Secretary (DM) Shri CM Sharma 011-2338 4752 9810640845 011-2338 4555 011-2616 7345 Deputy Secretary (DM) Shri Pankaj Kumar 011-2307 0306 9868933325 011-2626 6126 Joint Secretary (A) Atomic Energy (BARC) Dr. MM Adtani 022-2559 8752 09757163201 022-25519209 022-2556 8357 Head, BARC Shri K Narayana Kutty 022-2559 8697 09969191398 022-2555 4983 Head, Trg Group, BARC Department of Space (National Remote Sensing Centre) Dr. VS Hegde 080-2341 6356 09845389131 080-23415298 080-2666 5477 4DJFOUJöD
4FDSFUBSZ
)2 Shri V. Bhanumurthy 040-2388 4252 09441286607 040-23870445 040-2776 8542 Project Director, NDEM Ministry of Civil Aviation Shri Rohit Nandan 011-2461 7692 9560876677 011-2465 4055 011-2410 6344 Joint Secretary Shri Prashant Sukul 011-2461 0386 9810866142 011-2465 5839 011-2461 0044 Joint Secretary Shri LRS Reddy 011-2461 0366 9958877322 011-2461 0366 011-2625 4963 Director Ministry of Coal Shri AK Bhalla 011-2338 4224 9650422244 011-2338 5652 011-2688 9386 Joint Secretary(C) Shri PR Mandal 011-2338 6347 9818315656 011-2338 7738 011-2332 9374 Adviser (Proj) Ministry of Communication & Information Technology Dr. Gulshan Rai 24368544 24366806 22323085 DG CERT-In Shri B J Srinath 24363138 9899576710 24366806 26187415 Senior Director Ministry of Defence Shri Subhash Chandra 011-2301 1410 9717790920 011-2301 3709 011-2410 3862 Joint Secretary(G/Air)

227 Disaster Management in India

Tel (O) Mobile Fax Res. Ministry of External Affairs Shri Malay K Sinha 011-2301 5749 9818550246 011-2379 4427 011-23384104 Joint Secretary (CNV) Shri RK Tyagi 011-2301 1357 011-2379 2285 0124-2577469 Joint Secretary(CNV) Ministry of Environment & Forest Shri CD Singh 011-2436 3984 9999440680 011-2436 3984 011-2610 9513 DIG Forests(FPD) Ms. Prakriti Srivastava 011-2436 1795 9999163337 011-2436 1795 Joint Director (Wild Life) Ministry of Health & Family Welfare Dr. RS Shukla 011-2306 1706 9910334726 011-2306 1398 011-2469 2410 Joint Secretary, Ms. Shalini Prasad 011-2306 1773 9968283478 011-2306 1767 011-2469 7277 Joint Secretary Dr. P. Ravindran 011-2306 1302 9868619799 011-2306 1457 011-4563 9559 Director(EMR), DGHS Dr. L. Swasticharan 011-2306 1469 9818988281 011-2306 1469 011-2410 7325 CMO(EMR), DGHS Ministry of Information Technology Dr. Gulshan Rai 011-2436 8544 011-2436 6806 011-2232 3085 DG Shri B J Srinath 011-2436 3138 9899576710 011-2436 6806 011-2618 7415 Senior Director Ministry of Mines Shri G. Sriniwas 011-2338 4886 011-2338 8487 Joint Secretary Shri R K Malhotra 011-2338 3958 9810476390 011-2338 3958 011-2554 9949 Deputy Secretary Ministry of Petroleum & Natural Gas Shri LN Gupta 011-2338 6935 9717205888 011-2338 2673 011-2461 7600 Joint Secretary Shri PK Singh 011-2307 3165 9899969618 011-2338 3682 Director Ministry of Power Shri Sudhir Kumar 011-2371 0389 9650293193 011-2373 1266 011-2687 6633 Joint Secretary (OM) Shri AK Saxena 011-2371 6674 9868156166 011-2371 6674 011-2626 6166 Director(OM) Ministry of Railways Shri DP Pandey 011-2338 9500 9717647033 011-2410 0402 Adviser TT(M) Shri HD Gujrati 011-2338 4260 9910487464 011-2330 3872 011-2410 5568 EDTT(S)

228 Tel (O) Mobile Fax Res. Ministry of Road Transport & Highways Shri SK Dash 011-2371 7294 9310144446 011-2331 1802 011-2616 6805 Joint Secretary(T) Shri Raghav Chandra 011-2371 9209 8826277007 011-2335 9477 011-2656 1483 Joint Secretary(Highways) Ministry of Shipping Shri Rakesh Srivastava 011-2371 1873 9810505633 011-2332 8549 011-2410 1078 Joint Secretary Shri Rajeev Gupta 011-2371 0189 9910600334 011-2372 2885 011-2412 2685 Joint Secretary Ministry of Water Resources Shri Sudhir Garg 011-2371 0343 9899447877 011-2371 0253 011-2307 4284 Joint Secretary(A) Shri Ram Sharan 011-2373 8126 93129 71431 011-2373 8126 011-2511 3583 Deputy Secretary(A)

G. Forecasting agencies Tsunami Warning Centre, Hyderabad

Name Tel (office) Mobile Fax 1 Dr.S S C Shenoy, Director 040-23895004 09441013377 040-23895001 2 Shri T Srinivasa Kumar 040-23895006, 09441229297 040-23895012 Scientist Incharge, 23886006 040-23892022 (R) 3 Control Room 040-23895011/19 040-23895001

Snow & Avalanche Study Establishment, Chandigarh

Name Tel (office) Mobile Fax 1 Sh Ashwagosha Ganju, 0172-2699804-806 09872083117 0172-2699802 Director Extn – 203 2 Dr. M R Bhutiani, Joint 0172-2699804-806 09463999980 0172-2699970 Director

Geological Survey of India

Name Tel (office) Mobile Fax 1 Dr. A Sundara Moorthy (033)22861676 09872083117 033-2699802 Director General (033)22861661 2 Shri Probhash Pande, 033-22861693 09432647708 Additional DG 3 Control Room (Delhi) 011-29962671 011-29962671

229 Disaster Management in India

Indian Meteorological Department Name Tel (office) Mobile Fax 1 Shri Ajit Tyagi 011-24611842 (o), 9313982396 011-24611792 Director General 011-24633692 (R) 2. Shri A K Bhatnagar 011-24697473 (o) 9868880134 011-24697473 ADG (M) 011-24654939 (R) 3. Control Room – 011-24619943, Seismology 24624588 4. Control Room – Flood 011-24631913 5. Cyclone warning 011-24652485

Central Water Commission Name Tel (office) Mobile Fax 1 Shri C Lal (FMP) 011-26168258 9811054117 011-26106523, 26102935 2. Control Room 011-26106523

Integrated Defence Staff Name Tel (office) Mobile Fax 1 DCIDS (Ops) 011-23013947 (Exch- 9868890769 011-23013947 35886) 2 ACIDS (Ops) 011-23011442 3. Control Room 011-23005131, 011-23005137, 23005114 24605147 H. Telephone Number of Chief Secretaries (CS) and Relief Commissioners (RC) of States/UTs as on 15/06/11 State / UT Name /Designation officer Telephone (O) Mobile No. Fax No. Andhra CS Shri. V.S. Prasad 040- 040-23453700 Pradesh 234526500 40-23455340 RC Shri N. Siva Sankar 040-23456005 09963944416 040-23451819 Commissioner for DM Arunachal CS Pradesh RC Mr. Tabom Bam 0360--2212595 09436040035 0360-2215719 Chief Secretary/PS Relief Assam CS Shri N K Das 0361-2261403 0361-2260900 0361-2261120 RC Shri V K Pipersenia, 0361-2237255 09435552145 0361-2260900 Principal Secretary/DM Bihar CS Shri Anup Mukherjee 0612-2215804 0612-2215983 0612-2215085 RC Shri Vyas ji 0612-2215600 09431800732 0612-2217305 Principal Secretary(Rev) & DM 0612-2213855 0612-2217786

230 State / UT Name /Designation officer Telephone (O) Mobile No. Fax No. Chhattisgarh CS Shri P. Joy Oommen, 0771-2221207 0771-2221206 RC Shri Sunil Kumar Kujur 0771-2221120 09425208500 0771-4034823 Principal Secretary (Rev) Goa CS Shri Sanjay Kumar Srivastava 0832-2419402 0832-2415201

RC Shri B. Vijayan 0832-2419440 09527002327 0832-2419687 Principal Secretary (Rev) Gujarat CS Shri Achal Kumar Jyoti 079-23220372 079-23250305 079-23250301 079-23250302 RC Shri P.K. Parmar 079-23251611 09978406123 079-23251568 Principal Secretary /RC Haryana CS Ms. Urvashi Gulati 0172-2740118 0172- 27403147 RC Mr. Naresh Gulati 0172-2711925 09815970530 0172-2711925 Fin.Comr & Principal Secretary DM Himachal CS Ms. Rajwant Sandhu 0177-2621022 0177-2621813 Pradesh RC Shri Deepak Sanan 0177-2621894 09816022740 0177-2621894 Principal Secretary (Rev) Jharkhand CS Dr. S K Chaudhary 0651-2400240 0651-2403255 0651-2400250 RC Mrs. M.N. Karketta 0651-2400218 09470521008 0651-2400231 Secretary(DM)

J&K CS Shri Madan Lal 0194-2455353 0194-2452356 0194-2452257 (Srinagar) (Srinagar) 0191-2546188 0191-2546773 (Jammu) (Jammu) RC Sheikh Ejaz Iqbal 0194-2452268 09419184131 0194-2481703 Secretary(Rev) (Srinagar) (Srinagar) 0191-2544543 0191-2579981 (Jammu) Karnataka CS Shri S.V. Ranganath 080-22252442 080-22258913 080-22092476 RC K.S. Prabhakra 080-22353980 09448137645 080-22354321 Secretary (Rev) 080-22032582 Kerala CS Dr. P. Prabakaran 0471-2333147 0471-2327176 0471-2327376 RC Dr (Mrs) N P Haran, 0471-2325239 09447132755 0471-2335467 Add CS, Revenue and DM 0471-2518549 Madhya CS Shri Avani Vaish 0755-2441848 0755-2441521 Pradesh RC Shri Anil Srivastava 0755-2551836 09425014155 0755-2440033 Principal Secretary (Rev)

231 Disaster Management in India

State / UT Name /Designation officer Telephone (O) Mobile No. Fax No. Manipur CS Shri D. S. Poonia 0385-2451144 0385-2452629

RC Dr. Suhel Akhtar 0385-2440736 09402414682 0385-2443443 Commissioner Relf. &DM Mizoram CS Shri Vanhela Pachuau 0389-2322411 0389-2322745 RC T.V. Fambawl 0389-2324512 09436142334 0389-2306518 Secretary(DM) & Rehabilitation Maharashtra CS Shri Ratnakar Gikwad 022-22025042 022-22028594 022-22028762 RC Mr. J S Saharia 022-22025274 09821128083 022-22855920 Additional CS and RC Meghalaya CS Shri W.M.S. Pariat 0364-2224801 0364-2225978 0364-2222250 RC Mr. K S Krufa 0364-2224184 09402196384 0364-2225978 Principal Secretary(Rev) Nagaland CS Shri Lalthara 0370-2240082 0370-2270057 0370-2270076 RC Shri J. Alam 0370-2270068 09402489749 0370-2270071 Home Commissioner & DM Orissa CS Shri B K Patnaik 0674-2536700 0674-2536660 0674-2534300 RC Mr. N K Sundaray 0674-2534180 09437078780 0674-2534176 Special Relief Commissioner Punjab CS Shri Subodh Chandra 0172-2740156 0172-2742488 Agrawal 0172-2740860

RC Shri A.R. Talwar 0172-2743854 09815722260 0172-2747798 Financial Commissioner (Revenue) Rajasthan CS Shri Salaudin Ahmed 0141-2380254 0141-2227114 0141-2227254 RC Shri Tanmay Kumar 0141-2227390 09414181018 0141-2227155 Secretary (Relief) Sikkim CS Shri Tseten Dorji 03592-222315 03592-222851 03592-224323 RC Shri P.K. Kharel 03592-202664 09733159460 03592-202932 Commissioner -cum- Secretary (Rev & DM) Tripura CS Shri S. K. Panda 0381-2323200 0381-2324013 0381-2324392 RC Shri Sushil Kumar 0381-2419520 09436120043 0381-2413474 Principal Secretary, Revenue and DM

232 State / UT Name /Designation officer Telephone (O) Mobile No. Fax No. Tamil Nadu CS Shri Debendranath Sarangi 044-25671555 044-25672304 044-25677128 RC Shri K Gnanadesikan, 044-28523299 9940266114 044-28546624 Principal Secretary & CRA Uttar Pradesh CS Shri Atul Kumar Gupta 0522-2221599 0522-2239283 0522-2238212 RC Shri K K Sinha 0522-2238107 09335299758 0522-2238084 Principal Secretary & Relief Commissioner. Uttrakhand CS Shri Subhash Kumar 0135-2712094 0135-2712113

RC Dr. Rakesh 0135-2712008 09412050249 0135-2711881 Secretary, Revenue & DM Shri Bhaskakranand 0135-2656130 09837542221 0135-2712800 AS (Rev), Relief & DM West Bengal CS Shri Samar Ghosh 033-22145858 033-22144328 033-22145047 RC Shri Indiver Pandey 033-22143674 09007154222 033-22144005 Principal Secretary, Disaster Management Andaman & CS Shri Shakti Sinha 03192-233110 03192-232656 Nicobar 03192-234087 RC Shri V. Abraham 03192-234880 09434284798 03192-233629 Secretary, DM Chandigarh CS Shri Pradip Mehra 0172-2740118 0172-2740317 RC Shri Brijendra Singh 0172-2700109 08427202555 0172-2700053 DC & RC Daman & Diu CS Shri Narendra Kumar 0260-2642777 0260-2642702 RC Shri Majoj Kr Sahu 0260-2230698 09726185900 0260-2230689 Collector & RC Dadra & CS Shri Narendra Kumar 0260-2642777 0260-2642702 Nagar Haveli RC Shri Sanjay Goel 0260-2642721 09913577711 0260-2642787 Collector & RC Delhi CS Shri Rakesh Mehta 011-23392101 01123392102 011-23392100 RC Shri Dharmender 011-23962825 09811848809 011-23931269 Divisional Commissioner

Laksha- CS Shri J. K. Dadoo 04896-262255 04896-262184 dweep RC Dr. Vasanta Kumar 04896-262256 9446562278 04896-263180 Collector & RC Puducherry CS Shri R. Chandra Mohan 0413-2334145 0143-2337575 0413-2335512 RC Mrs. K R Meena 0413-2334144 9585506968 0413-2334145

233 Disaster Management in India

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234 Suggestions for improving the book and / or corrections, if any may be sent to [email protected]

This book has been prepared under the GoI-UNDP Disaster Risk Reduction Programme (2009-2012)